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Humanitarian Action Plan for the Conflict-Affected Provinces of

Responding to needs ● Consolidating gains ● Transitioning to recovery

2011

TABLE OF CONTENTS

1. BACKGROUND AND SCOPE ...... 1

TABLE I: SUMMARY OF REQUIREMENTS (GROUPED BY CLUSTER) ...... 3 TABLE II: SUMMARY OF REQUIREMENTS (GROUPED BY APPEALING ORGANIZATION)...... 3

2. CONTEXT...... 4

3. NEEDS ANALYSIS ...... 10

3.1 HUMANITARIAN CASELOAD ...... 10 3.2 HUMANITARIAN AND DEVELOPMENT INDICATORS ...... 17 3.3 HUMANITARIAN NEEDS OF IDPS AND RETURNEES ...... 21

4. SCENARIOS ...... 23

5. STRATEGIC OBJECTIVES ...... 25

6. HUMANITARIAN AGENCIES AND COORDINATION...... 28

6.1 COORDINATION...... 28 6.2 HUMANITARIAN AGENCIES ...... 31

7. CLUSTER RESPONSE PLANS...... 33 7.1 CCCM ...... 33 7.2 EARLY RECOVERY ...... 42 7.3 EDUCATION ...... 47 7.4 FOOD SECURITY AND AGRICULTURE ...... 54 7.5 HEALTH ...... 59 7.6 NUTRITION ...... 64 7.7 PROTECTION ...... 70 7.8 WATER, SANITATION AND HYGIENE...... 85

ANNEXES ...... 89

ANNEX A. LIST OF ORGANIZATIONS INVOLVED...... 89 ANNEX B. LIST OF RESPONSE PLAN PROJECTS (GROUPED BY LOCATION AND CLUSTER) ...... 90 ANNEX C. ACRONYMS AND ABBREVIATIONS...... 106

Full project details can be viewed, downloaded and printed from http://fts.unocha.org.

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ii Mindanao Humanitarian Action Plan 2011 1. Background and Scope The Humanitarian Action Plan for Conflict-Affected Provinces of Mindanao (HAP) covers humanitarian activities in six provinces of the southern Philippine island of Mindanao: , , , Kudarat, North and .1 The provinces of Maguindanao and Lanao del Sur fall within the Autonomous Region in Muslim Mindanao (ARMM). The provinces of North Cotabato, South Cotabato and fall within Region XII. The province of Lanao del Norte is within Region X. The ‘island provinces’ of and , although affected by conflict and with outstanding humanitarian needs, are not covered by the HAP at this time owing to a lack of information and access. It is intended, however, that these provinces be covered by the HAP in due course. The HAP covers a twelve-month period, from January 2011 until the end of December 2011. The total value of the projects in the HAP is US$ 34,527,526.2 The HAP was developed shortly after passage of the Republic Act No. 10121 (the “Disaster Risk Reduction and Management Act” / DRRMA), which strengthens the Philippine disaster risk reduction and management system. The process of developing the HAP and the cluster plans therein fully recognises the provisions of this law. The HAP was developed through an intensive consultation process at the Mindanao level, which commenced with a one-day workshop in on 2 August 2010. The HAP workshop, which established the basic scope, framework and approach for the HAP, benefitted from the active participation of ARMM and Region XII Government representatives, all members of the international humanitarian community active in Mindanao and key local non-government organizations (NGOs). The main component of the HAP was developed through the clusters, with each cluster chaired by the respective government line ministry, and subsequently endorsed by both the Mindanao Humanitarian Team (MHT) in Cotabato City and the Humanitarian Country Team (HCT) in before being shared with the regional governments for their final comments.3 A list of government departments, international organisations, UN agencies and international and national NGOs which participated in the HAP process is included in Annex A. From humanitarian response to early recovery With the initial conflict-related displacement having taken place more than two years ago, and the ceasefire of July 2009 continuing to hold4, the vast majority of the caseload of internally displaced people (IDPs) targeted in this HAP have returned to their places of origin. Accordingly, the emphasis of programming by humanitarian actors (as well as governments) is increasingly on early recovery interventions, both as projects in their own right and as a fundamentally important cross-cutting theme in ongoing humanitarian programmes. In terms of the generally recognised model of transition from humanitarian relief through early recovery to development (as illustrated in the diagram below), the target caseload is considered to be in the early recovery phase, requiring decreasing humanitarian intervention specifically related to needs generated by conflict/displacement and increasing humanitarian support through early recovery initiatives. This critical shift in focus has been reflected throughout the HAP, with early recovery mainstreamed into each of the cluster response plans (rather than overburdening the “Early Recovery Cluster Response Plan”). The HAP recognises the fundamental importance of ensuring that returns are sustainable and that failure to adequately support early recovery would risk prolonging the crisis. It is important to note in this context that in the United Nations Development Assistance Framework (UNDAF) for 2012-2018, which is being developed in close consultation with the Government and key stakeholders, Mindanao – in particular the Autonomous Region in Muslim Mindanao – has been identified as the region least likely to achieve the Millennium Development Goals (MDGs) and, accordingly, as a priority geographic focus of the UNDAF (meaning that the HAP is in line with longer-term UN and government development objectives). Moreover, it is important to note the pattern of the past few decades, which has been that of peace negotiations punctuated by widespread fighting that results in relatively few deaths but displaces hundreds of thousands – i.e. cycles of displacement/return/displacement.

1 About 33% of the total budget is earmarked for projects in Maguindanao (see also the pie charts in Annex B). 2 All dollar signs in this document denote dollars. 3 These consultations took place from 30 November to 3 December 2010 in General Santos City (OCD Region XII), (DSWD Region XII), de Oro (OCD and DSWD Region X) and Cotabato City (ARMM Government). 4 The International Monitoring Team has recorded only three armed skirmishes between the Government of the Republic of the and the Moro Islamic Liberation Front (MILF) from January to October 2010, a significant drop from 110 for the same period in 2009 (a total of 116 armed skirmishes were recorded from January to December 2009, and 222 from March to December 2008).

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Source: Cluster Working Group on Early Recovery (2008), Guidance note on Early Recovery The diagram illustrates the transition from the relief to early recovery and development phases and the main mechanisms the international community offers in support throughout this process, noting the continuity of the role of the national coordination mechanisms throughout.

An Early Recovery Plan was developed in mid-2010 by the ARMM Government, through a consultative process and with the support of international actors. The Plan aims to ‘bridge the gap between immediate relief and reconstruction’ and ‘augment ongoing emergency assistance operations by building on humanitarian programmes, to ensure that their inputs become assets for long-term development and thereby foster the self-reliance of affected populations and help rebuild livelihoods.’5 In keeping with the Guiding Principles on Early Recovery, the plan focuses on building local capacity, effective analysis and monitoring, and includes cross-cutting themes such as gender, conflict- sensitivity and human rights. The Early Recovery Plan covers 196 conflict-affected barangays (communities) in ARMM and prioritises 46 of these (in Maguindanao). The HAP has been developed carefully in order to ensure consistency with, and support for, the ARMM Early Recovery Plan, as is reflected in the early recovery projects and the early recovery aspects of projects in the other Cluster Response Plans. On 7 October 2010 the Office of the Presidential Adviser on the Peace Process (OPAPP) presented the Government’s new “PAMANA: Payapa at Masaganang Pamayanan (Resilient Communities for Peace and Development) Programme for Communities in Conflict-Affected Areas” to the international community. While the PAMANA Programme is intended to cover all conflict-affected areas in the Philippines, its main geographic focus is the conflict-affected areas of Mindanao.6 Accordingly, compatibility between the objectives of the HAP and those of PAMANA is essential. It should be noted in this context that the PAMANA Programme provides a general framework for action, rather than a detailed action plan,7 and is focussed on peace-building, reconstruction and development. The geographic scope of the HAP is generally in line with the conflict-affected provinces in Central Mindanao identified by PAMANA8 and, like PAMANA, the HAP aims to ensure that communities are at the centre of the response, through application of the participatory approach (e.g. community identification of priorities and involvement in project implementation).

5 ARMM Early Recovery Plan (2010), page 3. 6 According to PAMANA, 82.64% of conflict-affected barangays are in ARMM/Mindanao. 7 The only information on PAMANA available at the time of writing was the powerpoint presentation from the 7 October meeting. No further documentation has been provided. 8 PAMANA identifies Maguindanao, Lanao del Sur, Sultan Kudarat, North Cotabato and Lanao del Norte as the most conflict-affected provinces in Central Mindanao.

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Table I: Summary of requirements (grouped by cluster)

Mindanao Humanitarian Action Plan 2011 as of 27 January 2011 http://fts.unocha.org

Compiled by OCHA on the basis of information provided by appealing organizations.

Requirements Cluster ($) CCCM 4,435,700 COORDINATION 246,888 EARLY RECOVERY 1,075,950 EDUCATION 2,828,150 FOOD AND AGRICULTURE 11,941,675 HEALTH 2,554,415 NUTRITION 2,014,000 PROTECTION, INCL. CHILD PROTECTION AND SGBV 5,537,704 WASH 3,893,044 Grand Total 34,527,526

Table II: Summary of requirements (grouped by appealing organization)

Mindanao Humanitarian Action Plan 2011 as of 27 January 2011 http://fts.unocha.org

Compiled by OCHA on the basis of information provided by appealing organizations.

Requirements Appealing Organization ($)

FAO 2,141,675 IOM 4,285,890 MinHRAC 291,557 MTB 307,912 MYROi 261,055 OCHA 246,888 SC 1,452,700 UNDP 1,075,950 UNFPA 808,410 UNHCR 3,994,147 UNICEF 9,042,150 WFP 9,800,000 WHO 819,192 Grand Total 34,527,526

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2. Context The provinces of Mindanao covered by this Humanitarian Action Plan have been in a state of low- intensity conflict since 1968.9 The conflict, combined with the impact of clan and natural disasters, has resulted in cycles of displacement in which large numbers of civilians depend primarily on humanitarian assistance. The most recent major displacement occurred in August 2008, with approximately 750,000 people displaced by armed conflict. The IDPs remaining from this displacement and those who have returned recently to their places of origin, or resettled elsewhere, form the main basis of the humanitarian caseload with which the current HAP is concerned. In order to more fully appreciate the context, it is important to understand the impact of chronic poverty on the remote communities in the provinces targeted by the HAP, which serves to exacerbate the effects of conflict (for example, very poor access to potable water, troubling nutritional statistics and a range of other concerns, all of which have been highlighted in the UNDAF process as well). A snapshot of the conflict-affected provinces While the geographic scope of the HAP covers six provinces in Central Mindanao, the situation pertaining to each province is quite distinct and, accordingly, the humanitarian needs specific to each province vary to a significant degree. The ARMM Region (which, for the purposes of the HAP, includes Maguindanao and Lanao del Sur) is where the humanitarian needs are greatest and, consequently, is the priority focus of the HAP. According to the National Statistics Office, at the time of the last census in 2007 the populations of the six provinces covered by the HAP were:

Maguindanao 1,273,715 Lanao del Norte 538,283 Lanao del Sur 1,138,544 North Cotabato 1,121,974 South Cotabato 767,255 Sultan Kudarat 677,062

The following provides a snapshot of the current situation in respect of each province: ARMM Maguindanao Maguindanao is the province where most people were displaced as a result of the 2008 conflict and where the impact of the conflict on civilians was the most severe in other respects as well (e.g. damage to houses and community structures). Accordingly, Maguindanao is the primary focus of the HAP. According to official government data,10 Maguindanao is also the most impoverished of the six provinces, which means that the underlying vulnerabilities of the affected population were more pronounced even before they were displaced (see section 1.3 “Humanitarian Needs of IDPs and Returnees”). While most IDPs in Maguindanao have spontaneously returned to their places of origin over the course of 2010, there remains a residual caseload of IDPs, both those living in Evacuation Centers (ECs) and those living with host communities, who require humanitarian assistance. Moreover, the people who have returned face significant challenges in re-establishing their lives and livelihoods, and their humanitarian needs are numerous. These needs include (but are not limited to) access to food and nutritional support, access to potable water, proper sanitation facilities and health care, rehabilitation of community structures (such as health facilities, schools, farm-to-market roads and solar driers), shelter support and support for education and sustainable livelihoods (especially agricultural support). There is also a significant need for support in the area of human rights and protection, including an improved mechanism for reporting human rights violations and child protection interventions.

9 It is estimated that the conflict was responsible for the deaths of 120,000 civilians between 1972 and 2004. 10 e.g. National Statistics Office; National Statistical Coordination Board; Regional Planning and Development Office- ARMM.

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Lanao del Sur Twenty of the 38 municipalities in Lanao del Sur (including City) were affected by the 2008 conflict, with the majority of the affected areas found around the lake where the main settlements are located. At only 14,643 people, however, the caseload that the HAP is targeting in Lanao del Sur is relatively modest compared with other provinces. It should be noted that this figure is perhaps an underestimate, reflecting the fact that many of the displaced people in Lanao del Sur live with host families and, consequently, are more difficult to track than those in Evacuation Centers. What is of note is that in September 2010 the percentage of those who were still considered displaced (47%) was relatively high compared with other provinces. This is likely to be in part due to ongoing local security issues and natural disasters. In addition to being badly affected by the conflict, Lanao del Sur has also been subjected to flooding and clan feuds known as rido. (In December 2010 a period of heavy rainfall reversed the previous trend of return to places of origin and resulted in further displacement.) Unfortunately the rule of law is weaker in parts of this province than most others in the HAP, especially in the conflict-affected municipalities, which makes assessments and the subsequent implementation of projects in the area more challenging. In general, there is a lack of up-to-date data for the area (some ongoing initiatives and projects under the HAP aim to address this issue). The data that are available suggest that there are significant needs relating to food, nutrition, health and water, sanitation and hygiene (WASH). Region XII North Cotabato, South Cotabato and Sultan Kudarat The 2008 conflict affected each of these provinces, although less severely than in ARMM. The Region XII authorities had relatively functional mechanisms to support the displaced population. The capacity of the region and the fact that IDP numbers were generally lower meant that phases of IDP return to places of origin and recovery progressed further in Region XII than in ARMM. According to IOM’s data from September 2010, more than 90% of the IDPs in North Cotabato were reported to have returned, whilst in Sultan Kudarat a relatively high proportion remained displaced (25%). The latter was in part due to natural disasters, and the figures would also capture those displaced by rido. Recent data from Region XII DSWD indicates that the families displaced due to the 2008 GRP/MILF conflict have returned home, but does not include on rido or flood-displaced communties. Closer examination indicates that the humanitarian situation in the provinces of Region XII varies considerably. Some municipalities continue to suffer more acutely the consequences of displacement due to conflict, including rido. Issues relating to health, protection, WASH and nutrition are of particular note. Other municipalities – particularly in Sultan Kudarat – have suffered relatively high displacement due to flooding. In some areas the activities of armed groups have hindered the access of IDPs and host communities to services (both of the government and of the humanitarian community) and have further obstructed the return and recovery process. Region X Lanao del Norte Lanao del Norte was the only province in Region X directly affected by the conflict. Thirteen municipalities within Lanao del Norte were affected, with the majority of the displacement taking place in the coastal municipalities on Iligan Bay. According to the Department of Social Welfare and Development (DSWD), figures on displacement indicate that displacement peaked in September 2008, at 12,595 families, but the total cases recorded by humanitarian agencies is significantly higher. At the time of preparation of the HAP, more than 88% of the caseload of 38,510 people was considered no longer displaced (WFP data from September 2010), with additional returns anticipated in the intervening period. Consequently, the emphasis on programming in Lanao del Norte under the HAP is on early recovery activities. ¨

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History and root causes of the conflict An estimated 5% of the Philippine population of 88.5 million people11 are Muslim, referred to as ‘Moro’. Historically the Islamic formed a majority in much of Mindanao, the second largest of the country’s more than seven thousand islands. had spread to Mindanao from the Molucca Straits in 1380 and was adopted by a number of the distinct ethnic groups of Mindanao, including the Maguindanaoans, the Maranaoans and the Tausug. From 1565 onwards, the Moro people came into contact with the Spanish, who were in the process of colonising the Philippines. The relationship between the colonisers and the Moro was characterised by a war of attrition interrupted occasionally by temporary truces. During more than 300 years of Spanish control of the Philippines, the Spanish at no time controlled the island of Mindanao, with the exception of its settlement in , from which it commanded the Basilan Straits. The United States governed the Philippines from 1898 through to its independence in 1946 and consolidated the country under one system of government modelled on that of the United States. Throughout the American colonial period, people from other parts of the Philippines, particularly the , began to settle in parts of Mindanao. It was only after independence in 1946, however, that migration to Mindanao accelerated. By the 1960s, formed a majority only in the provinces of Maguindanao, Lanao del Sur and the ‘island provinces’ of Basilan, Sulu and Tawi-Tawi, as well as in specific municipalities of several other provinces. The unique history of Mindanao within the Philippines is fundamental to understanding the current situation, with the root causes of the conflict stemming largely from the island’s unique circumstances. Currently, the conflict-affected provinces of Mindanao are the poorest in the Philippines and, in addition to the conflict-related humanitarian and early recovery needs, there is widespread unemployment and under-employment. Governance and rule of law face significant challenges and a situation of generalised insecurity and poor human security persists. The PAMANA Programme recognises the following as the root causes of the conflict: (i) poor governance, injustice and abuse; (ii) political marginalisation and “inferiorisation”; (iii) threats to Moro and Islamic identity; (iv) perception of government neglect and absence of government; and (v) exploitation and marginalisation of indigenous and cultural communities.12 A brief history of war and peace Communal fighting between Moro and settlers began shortly after the independence of the Philippines from the United States, with both Moro and Christian settlers forming militias. The Moro formed ‘Blackshirt’ and ‘Barracuda’ militias and settler militias were known as ‘Ilaga’. Originally seeking secession from the Philippines, the Moro insurgencies later modified their aims to that of greater autonomy within the Philippines for the Moro people in the areas where they form a majority of the population. The MNLF-GRP conflict The first Moro insurgent group, the Moro National Liberation Front (MNLF), was founded in 1968 and launched an armed insurgency against the Government of the Republic of the Philippines (GRP) in 1972. The first peace agreement, the Tripoli Agreement of 1976, was unsuccessful in reducing the level of conflict, due in part to the fact that it was implemented unilaterally by the government of President Marcos. The MNLF signed a ‘Final Peace Agreement’ with the GRP during the administration of then President Fidel V. Ramos on 2 September 1996, with a further agreement signed the following year. To continue with the implementation of the Final Peace Agreement, a Memorandum of Understanding was signed by the Office of the Presidential Adviser on the Peace Process (OPAPP), MNLF and the Organization of the Islamic Conference Peace Committee for the Southern Philippines (OIC-PCSP) on 20 April 2010 in Tripoli. The MNLF cadres have been incorporated within the structures of the GRP, particularly those of the ARMM, and some of its fighters have been integrated within the Armed Forces of the Philippines (AFP). The MNLF has not fought against the Government since this peace agreement was signed, but the MNLF still exists as a political movement. During the ARMM Peace Summit of September 2010, the MNLF leadership made clear its concern that successive governments had not implemented fully the Final Peace Agreement, that ARMM was

11 According to the National Statistics Office, the national population of the Philippines is estimated at 92.2 million as of 2009. 12 Office of the Presidential Adviser on the Peace Process (OPAPP) (October 2010), presentation on PAMANA.

6 Mindanao Humanitarian Action Plan 2011 not succeeding (partly due to being underfunded), and that many of the original grievances that had driven the conflict remained unresolved. Although the MNLF does not maintain fighting forces, in Basilan and on the Sulu Islands there are groups claiming to be affiliated with the MNLF that continue to engage in armed conflict. The MILF-GRP Conflict The Moro Islamic Liberation Front (MILF) broke away from the MNLF in 1977 (over questions of strategy and personality differences between its leadership13) and was officially launched in 1984. The MILF maintains that the Moro people have been unfairly treated by successive governments, disenfranchised of their land and subjected to economic and political discrimination. They seek recognition of the Moro peoples’ status as a ‘first nation’ supplanted by settlers, as well as redress for perceived injustices in the treatment of the Moro people by the GRP, especially with respect to land titling. The MILF does not accept the present governance and security arrangements and rejects the ARMM or any form thereof as a solution. On breaking away, the MILF absorbed many of the fighters from the MNLF who were based on Mindanao and rapidly built its armed wing, the Islamic Armed Forces (BIAF). Low- intensity conflict persisted between the BIAF and the Armed Forces of the Philippines throughout the second half of the 1980s and the 1990s. The first talks between the GRP and MILF began in 1997 and have continued sporadically ever since. Periodically, talks are suspended due to major outbreaks of violence, causing a humanitarian crisis. Most recently, talks restarted in October 2004 and continued up until August 2008,14 led by the respective ‘peace panels’ of both parties. In August 2008, the Government and MILF appeared to be close to a breakthrough as they agreed a draft Memorandum of Agreement on Ancestral Domain, which defined the geographical extent of a plebiscite where the electorate would be asked if they wished to join a putative Bangsamoro Juridical Entity that would form the basis for a revised autonomous Muslim region. The Memorandum of Agreement on Ancestral Domain had been initialled by both parties in Kuala Lumpur, where negotiations had been taking place, and was due to be signed formally by the Philippine President and MILF leadership. In response to a Temporary Restraining Order lodged against it, however, the Supreme Court, ruled that the agreement was unconstitutional. Negotiations ceased and fighting broke out between the Armed Forces of the Philippines and three base commands of the MILF acting independently of the MILF central leadership, resulting in approximately 200 people being killed and 750,000 displaced. According to the Internal Displacement Monitoring Centre, Mindanao produced the highest number of new IDPs for 2008.15 Although the August 2008 conflict affected Lanao del Sur, Lanao del Norte, North Cotabato and Sultan Kudarat, the fighting was most intense in Maguindanao. After a year of intermittent fighting between the Armed Forces of the Philippines and these ‘renegade’ commands, the GRP announced a Suspension of Military Operations (SOMO) on 23 July 2009, followed two days later by an announcement by the MILF of a Suspension of Military Actions (SOMA). The SOMO and SOMA, although not explicitly recognising the de facto control of administrative areas by the MILF, freezes in place the situation that existed at the time. The two parties have undertaken not to encroach on the territory controlled by the other. In preparation for the resumption of the stalled peace talks between the GRP and the MILF, a four- point Joint Statement was forged by the two parties during their two-day meeting in Kuala Lumpur on 28-29 July 2009. The Joint Statement led to the creation and the adoption of the framework agreement on the formation of the International Contact Group on 15 September 2009. Subsequently, the Agreement on the Civilian Protection Component of the International Monitoring Team was signed on 27 October 2009 and peace talks resumed on 8-9 December 2009 in Kuala Lumpur. Security improved markedly during the second half of 2009, until the Maguindanao Massacre of 23 November16 caused new displacement and led to major political upheavals in the ARMM, especially in the province of Maguindanao.

13 The leader of the MNLF, , is a Tausug from the Sulu Islands. The initial MILF leader, Salamat Hashim was a Maguindanaon. 14 During this time the conflict continued but over seventy separate agreements and protocols were signed between the two parties. 15 See the section on Humanitarian Caseload in the Needs Analysis. 16 58 people were killed in the Maguindanao massacre.

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The security situation improved again in early 2010 and has continued to be stable throughout the year. The SOMO and SOMA have held, with intermittent talks taking place between the GRP and MILF in Kuala Lumpur, under the auspices of the Malaysian government. Notably, the Declaration of Continuity for Peace Negotiations between the GRP and the MILF was issued during the 19th GRP/MILF exploratory talks of 2-3 June 2010. As of December 2010, both the GRP and MILF had identified membership of the reformulated peace panels with the renewal of formal talks anticipated to commence in the coming months. It is anticipated that the current security situation will prevail, providing an environment conducive to the recommencement of negotiations. Although the conflict between the GRP and MILF pits an Islamic insurgency against a primarily Christian government, it would be a mistake to view this as a religious war. There is little or no sectarian violence and relations between Christians and Muslims, who often live in mixed communities, are generally harmonious. That said, optimism of the general public in areas affected by the conflict is tempered by an awareness that the peace process has dragged on for decades, even though several presidents have promised to end it. Moreover, there are spoilers of any potential agreement on both sides. Key peace process mechanisms The Joint Coordinating Committee for the Cessation of Hostilities (J-CCCH) comprising representatives of the Government and the MILF was first established in 1997 as the primary means of monitoring and enforcing the ceasefire. The Joint Coordinating Committee for the Cessation of Hostilities remains as relevant as ever and is actively engaged in conflict resolution at the local level. The International Monitoring Team, comprising unarmed military and civilian observers led by Malaysia and with the participation of Libya, Japan and Brunei, was first established in 2004 as a small observer mission to oversee the ceasefire and build confidence between the parties. It was withdrawn in the middle of 2008 but recommenced operations on 28 February 2010. Associated with the International Monitoring Team is a Civilian Protection Component, which has a mandate to monitor the situation with respect to the protection of civilians. Furthermore, an International Contact Group (ICG) comprising diplomats from various countries has been established to support the peace process. Other sources of conflict in Mindanao Separate to the Moro insurgencies is that of the New People’s Army (NPA) which is fighting for the establishment of a communist state in the Philippines. The New People’s Army launched an insurgency in 1968 and is present in many parts of the country. The New People’s Army is active in many areas of Mindanao but its actions, although deadly, have not caused displacement and so do not concern directly humanitarian agencies. The Group is fighting against the GRP and has a small presence in Sulu and Basilan but is believed to have little presence in Central Mindanao. With little or no professed political agenda and engaging primarily in kidnapping for ransom, Abu Sayyaf is regarded as a terrorist group with which no negotiations are entertained. Generalised violence and clan feuds (‘Rido’) The Maguindanao Massacre of 23 November 2009 was the most egregious and high profile example of a situation of generalised political violence that exists in parts of Mindanao and that is not directly linked to the GRP-MILF conflict. Armed fights between clans, families and other groupings known locally as ‘rido’ continue to be prevalent. Ridos usually concern land disputes, long-standing vendettas, political power and other such matters. Individuals, between whom there is a dispute, often related to a private matter, often resort to violence. At the time of writing, the Joint Coordinating Committee on the Cessation of Hostilities was tracking 23 unresolved ridos in Maguindanao province alone, of which nine were active. Although ridos fall outside of the main GRP-MILF conflict, many of the protagonists are affiliated with the MILF or are either elected or appointed government officials. A fight that starts as a rido between two individuals therefore has the potential to escalate, and has certainly done so in the past. Successive governments have supported local politicians in forming Citizen Armed Force Geographical Units or Civilian Volunteer Organisations, most of which are armed militias, and although nominally under the chain of command of the Armed Forces of the Philippines, often operate independently of it.

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Ownership of weapons is widespread across conflict-affected provinces of Mindanao, further exacerbating conflict and violence. The rule of law is weak especially in Maguindanao province. Extortion, kidnap for ransom and assassinations are commonplace. Natural disasters Like the rest of the Philippines, Mindanao is very susceptible to natural disasters. Seasonal flooding occurs across all the provinces included in this plan, with over 100,000 people displaced annually. This situation has been exacerbated by logging and clearing activities in upstream water catchment areas. In some areas, this has resulted in semi-permanent changes to river flow, prolonging the duration of displacement for those affected during the wet season. In the rural areas of Maguindanao, recent floods hampered the ability of returning IDPs to rebuild and re-establish livelihood activities. Mindanao is also prone to tectonic activity. While small earthquakes are regular, the most recent high- magnitude major earthquake occurred in 1976. The majority of the 5,000 to 8,000 fatalities were in the coastal areas as a result of the tsunami triggered by the earthquake.

9 Mindanao Humanitarian Action Plan 2011 3. Needs Analysis

3.1 Humanitarian caseload The affected population with which this Humanitarian Action Plan is primarily concerned comprises those IDPs displaced by the conflict that began in August 2008, including those who have now returned or resettled (which is the majority of them). IDPs displaced by generalised violence, including rido, and IDPs displaced by flooding or other natural calamities are also included in the humanitarian caseload. Several of the interventions pursuant to this HAP will also benefit communities hosting IDPs. The total population being considered in this HAP is 447,213 people.

History of displacement There have been several major displacements during the past decade and before due to conflicts between the Moro insurgencies and the Government. The most serious displacement was caused by the ‘all out war’ of 2000, in which it is estimated around one million people were displaced. The fighting of 2003-2004 also displaced an estimated 400,000 people. The graph below was compiled by the Internal Displacement Monitoring Centre showing the history of displacement in Mindanao, using data from the Department of Social Welfare and Development and other sources:

Displacement on a smaller scale due to rido, flooding and other natural calamities is frequent and is usually shorter term. Displacement from August 2008 Estimates very of those displaced due to the conflict that began in August 2008 and lasted until July 2009. The Government recognised that more than 750,000 people had been displaced, but fewer than half of these were ever registered as IDPs. Since the declaration of the SOMA and SOMO, IDPs have been gradually returning to their places of origin. Some IDPs remain displaced, however, with security, shelter and livelihoods being cited as the most common reasons for choosing to remain in the Evacuation Centers. The table below sets out the number of IDP families registered by the Department of Social Welfare and Development as IDPs by region, updated monthly. The number of registered IDPs actually peaked in August 2009, but this was a factor of increased capacity to perform registrations rather than new displacement. What is clear, however, is that displacement is a longer-term problem for Maguindanao than for the other provinces affected by the conflict.

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Households displaced by region Region X Region XII ARMM Total Aug-08 11,237 24,225 31,044 66,506 Sep-08 12,595 21,065 26,292 59,952 Oct-08 12,195 20,601 30,312 63,108 Nov-08 12,086 24,284 32,145 68,515 Dec-08 1,344 24,054 38,289 63,687 Jan-09 1,264 17,724 45,631 64,619 Feb-09 1,264 26,244 45,631 73,139 Mar-09 1,013 2,622 43,962 47,597 Apr-09 1,194 2,622 43,962 47,778 May-09 1,194 3,757 47,308 52,259 Jul-09 1,194 10,471 69,458 81,123 Aug-09 261 3,757 76,682 80,700 Sep-09 261 3,757 62,010 66,028 Nov-09 4,181 42,483 46,664 Dec-09 1,894 35,751 37,645 Mar-10 1,862 25,402 27,264 Apr-10 3,741 16,991 20,732 Jun-10 36,984 36,984 Jul-10 22,325 22,325

The accurate number of those displaced at a given moment in time is difficult to establish because agencies tend to track their own beneficiaries, as opposed to the global total of IDPs in a province. Furthermore, as agencies reach the end of their project funding cycle capacity is reduced and tracking mechanisms are discontinued. Meanwhile the DSWD’s capacity is not at the level required to monitor the entirety of the conflict-affected areas, and it deploys resources where they are most needed. With these challenges in mind, the recent statistics are as follows: Maguindanao: IOM data as of 17 December 2010 identify 2,549 IDP families (12,332 individuals) in 17 Evacuation Centers; 621 families (3,105 individuals) in Relocation Sites; 108 families (1,540 individuals) as ‘home-based’ IDPs. DSWD data from 10 November 2010 identifies 2,960 IDP families as still in Evacuation Centres. North Cotabato: DSWD Region XII indicated in January 2011 that they do not consider there to be any families still displaced as a result of the 2008 GRP/MILF conflict. However, displacement exists due to rido, but numbers fluctuate quickly in response to the localised security issues. IOM data from September 2010 identified 9,445 individuals as displaced in the province. Since then IOM monitoring has ceased. South Cotabato: DSWD Region XII indicated in January 2011 that they do not consider there to be any families still displaced as a result of the 2008 GRP/MILF conflict. IOM data from September 2010 identified 1,405 individuals as displaced in the province. Since then IOM monitoring has ceased. Sultan Kudarat: DSWD Region XII indicated in January 2011 that they do not consider there to be any families still displaced as a result of the 2008 GRP/MILF conflict. IOM data from September 2010 identified 7,020 individuals as displaced in the province, due primarily to a rido and flooding. Since then IOM monitoring has ceased. Lanao del Sur: WFP identified 6,958 individuals as displaced in September 2010 due to various factors. Lanao del Norte: WFP identified 4,386 individuals as displaced in September 2010 due to various factors.

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Patterns of displacement A feature of displacement in Mindanao is the typically short distances by which families are displaced. Distances of displacement can be as little as one kilometre and rarely more than a few kilometres. In general, IDPs move from rural areas, often referred to as ‘interior’ barangays, to the main roads and towns, so as to avoid armed clashes and artillery fire. The relative proximity of the displacement sites and places of origin allows a proportion of the displaced people to work in fields and plantations during the day at the place of origin, but return to the safer locations overnight. Many IDPs moved into camp-like settings known as Evacuation Centers (such as schools, community centres, other government buildings), residing in rooms or temporary shelters in the grounds of the building. Some, however, moved into the homes of family and friends or constructed shelters in host communities. These are commonly referred to as ‘home-based’ IDPs. In general, the needs of the families at Evacuation Centers are more acute than those who are home-based, as the latter draw to an extent on the resources of their host. However, home-based IDPs have proven more difficult for the authorities and humanitarian actors to track, and therefore run a greater risk of being inadvertently overlooked in the support provided by the agencies. Data collection issues IOM and the Department of Social Welfare and Development are currently tracking IDPs in Maguindanao only. Displacement persists in areas outside of Maguindanao, though the numbers are small and are largely driven by rido and flooding, and periods of displacement are relatively brief in most cases. IOM stopped its tracking outside Maguindanao due to funding constraints, while DSWD discontinued its tracking in other provinces following an improvement in the situation in their respective areas. During the period of displacement due to the 2008 conflict the figures presented from IOM and DSWD tracking varied significantly. In summary, differences in approaching conflict, rido, and flood-related displacement, breadth and depth of coverage, and definition resulted in discrepancies between agencies’ figures. A technical working group under the Camp Coordination and Camp Management (CCCM) Cluster was established and is working towards reconciling the data on IDP and returnee figures available. A methodology is being finalised and is anticipated to be rolled out in 2011. The solution proposed will be of value in relation to displacement due to ongoing rido and any future displacement episodes. On behalf of DSWD, IOM developed a Humanitarian Response Monitoring System (HRMS), a database system designed to enable DSWD to track displaced families. This database system was installed in DSWD in early 2010 but has yet to be used, partly due to a lack of capacity. Other organizations also collect data as part of their activities in the field. Returnees As early as January 2009, the Government of President Arroyo made clear its intention to resolve the displacement crisis through the return or resettlement of IDPs. Some success was achieved in North Cotabato, South Cotabato, Lanao del Norte, Lanao del Sur and Sultan Kudarat. While the returns process resulted in the physical return of IDPs to their places of origin or resettlement, however, durable solutions proved to be challenging, with some return areas still deficient in the basic support required by returned IDPs, particularly livelihoods and shelter. Many returnees in these provinces live a hand-to-mouth existence and continue to need support of a humanitarian nature. From the various surveys conducted to ascertain the intentions of IDPs, the overwhelming reason given for remaining in their places of displacement is security. Initially, there were concerns about the GRP/MILF ceasefire holding; now the reluctance to return is related more to the lack of a final peace agreement or the continued presence of armed men in their areas of origin. Many IDPs, particularly the men, visit their homes during the day to farm and collect fruit or firewood, but return to their camps at night due to these perceived insecurity concerns. A ‘Conflicted-Affected Communities Forum’ convened by members of the CCCM Cluster and involving representatives of more than 130 IDP sites and return areas was held in November 2010. The IDPs articulated their need (at both IDP sites and return areas) for humanitarian support and early recovery interventions such as food, health, WASH, shelter, education and livelihood support, as well as security and safety. The tracking/registration of returnees is weaker than that of IDPs and remains a challenging issue in the humanitarian response.

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Summary For the purposes of this HAP, the humanitarian caseload is as per the table below. The figures below are based on the data available from IOM and WFP, and represent both IDPs and returnees. Observations by agencies at ECs or return locations invariably takes place during the day, and results in relatively greater female than male numbers. This is attributed to males being largely involved in income-generation activities away from the site. Furthermore, some programmes target women exclusively and caseload figures based on this will further increase the relative proportion of women.

Affected population Location Female Male Total Maguindanao* 140,898 93,932 234,830

North Cotabato 76,884 51,256 128,140

South Cotabato 2,043 1,362 3,405

Sultan Kudarat 16,611 11,074 27,685

Lanao del Sur** 10,806 3,837 14,643

Lanao del Norte 27,307 11,203 38,510

Total 274,549 172,664 447,213

* Figures for Maguindanao, North Cotabato, South Cotabato and Sultan Kudarat are from IOM as of September 2010. ** Figures for Lanao del Sur and Lanao del Norte are sourced from the World Food Programme (September 2010).

The three maps on the following pages show the historical patterns of displacement by municipality.

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3.2 Humanitarian and development indicators Indicator Region Province Data Notes Population National 88,566,732 Source: National Statistics Office (NSO), August 2007 ARMM Maguindanao 1,273,715 Lanao del Sur 1,138,544 Region XII North Cotabato 1,121,974 Excluding 259,153 in Cotabato City South Cotabato 767,255 Excluding Gen. Santos City Sultan Kudarat 677,062 Region X Lanao del Norte 538,283 Consumer price index National 165.90 Source: NSO, April 2010 ARMM Maguindanao 194.50 Consumer price index (CPI) is a measure of change in Lanao del Sur 174.10 the average retail prices of goods and services Region XII North Cotabato 188.50 commonly purchased by a particular group of people South Cotabato 155.5 in a particular area. These figures for April 2010 are Sultan Kudarat 169.10 compared to the baseline year 2000, whose CPI is Region X Lanao del Norte 167.80 defined as 100. Purchasing power of the peso National 0.60 Source: NSO, April 2010 ARMM Maguindanao 0.51 Purchasing Power of the Peso (PPP) shows how Lanao del Sur 0.57 much the peso in the base period is worth in another Region XII North Cotabato 0.53 period. It gives an indication of the real value of the South Cotabato 0.64 peso in a given period relative to the peso value in the Sultan Kudarat 0.59 base period. Region X Lanao del Norte 0.60 Purchasing Power of the Peso (PPP) = 1 / CPI(All Items) * 100 Crude births (per thousand population) National 22.80 Source: NSO Quickstat, 2005-2010 ARMM Maguindanao 32.50 Lanao del Sur 36.5 Region XII North Cotabato 32.46 South Cotabato 30.51 Sultan Kudarat 24.50 Region X Lanao del Norte 25.91 Crude deaths (per thousand population) National 5.48 Source: NSO Quickstat, 2005-2010 ARMM Maguindanao 8.40 Lanao del Sur 7.87 Region XII North Cotabato 5.66 South Cotabato 6.35 Sultan Kudarat 5.52 Region X Lanao del Norte 6.56

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Indicator Region Province Data Notes Under-5-year-old mortality rate per 1000 live births National 32 Source: UNDP – MDG Rate of Progress (Regional ARMM Maguindanao 45 Including the provinces of Basilan, Sulu and Tawi-tawi result include other provinces in the region), 2006 Lanao del Sur Region XII North Cotabato 33 Including the province of South Cotabato Sultan Kudarat Region X Lanao del Norte 29 Including the provinces of , , and Infant mortality rate National 24 Source: UNDP – MDG Rate of Progress (Regional ARMM Maguindanao 33 result include other provinces in the region), 2006 Lanao del Sur Region XII North Cotabato 21 South Cotabato Sultan Kudarat Region X Lanao del Norte 22 Maternal mortality rate National 162 Source: UNDP – MDG Rate of Progress (Regional ARMM Maguindanao 320 result include other provinces in the region), 2006 Lanao del Sur (National) and 1995 (Regional) Region XII North Cotabato 188 South Cotabato Sultan Kudarat Region X Lanao del Norte 225 Life expectancy at birth (in years, medium Male Female assumption) National 66.11 71.64 Source: NSO Quickstat, 2005-2010 ARMM Maguindanao 60.30 61.65 Lanao del Sur 61.87 62.74 Region XII North Cotabato 65.77 71.08 South Cotabato 66.51 71.80 Sultan Kudarat 64.45 69.22 Region X Lanao del Norte 64.03 68.70 Literacy Rate (simple literacy) National 93.4 Source: NSO Quickstat, 2003 (National) and 2000 ARMM Maguindanao 66.27 (Provincial) Lanao del Sur 80.12 Simple literacy is the ability of a person to read and Region XII North Cotabato 86.69 write with understanding a simple message in any South Cotabato 89.44 language or dialect. The simple literacy status of an Sultan Kudarat 83.96 individual can be determined based on the Region X Lanao del Norte 85.04 respondents answer to the question “Can read and write a simple message in any language or dialect?”

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Indicator Region Province Data Notes Cohort survival rate in public and private National 69.80 elementary schools ARMM Maguindanao 48.10 Source: ARMM Peace Summit Presentation entitled Lanao del Sur “ARMM Multi-Stakeholders’ Peace and Development Region XII North Cotabato 54.04 Issues”, September 2010 (data from 2002-2003) South Cotabato Sultan Kudarat Region X Lanao del Norte 68.00 Proportion of families below subsistence National 10.2% threshold ARMM Maguindanao 18.20% Regional result include other provinces in the region Source: UNDP – MDG Rate of Progress 2003-2005 Lanao del Sur Region XII North Cotabato 14.00% South Cotabato Sultan Kudarat Region X Lanao del Norte 19.50% Proportion of families below poverty threshold National 24.40% Source: UNDP – MDG Rate of Progress, 2003-2005 ARMM Maguindanao 45.40% Regional results include other provinces in the region Lanao del Sur Region XII North Cotabato 32.10% Regional results include other provinces in the region South Cotabato Sultan Kudarat Region X Lanao del Norte 37.70% Proportion of underweight children under five National 24.60% years old ARMM Maguindanao 38.00% Source: UNDP – MDG Rate of Progress, 2003-2005 Lanao del Sur Region XII North Cotabato 27.80% South Cotabato Sultan Kudarat Region X Lanao del Norte 62.10% Rate (%) or Proportion of HH with access to Safe National 80.20% Water Supply ARMM Maguindanao 10.19% Data from DoH Sources: Lanao del Sur 6.13% Field Health Service Information System, DOH/RDO- Region XII North Cotabato 74.30% Data from UNDP ARMM, 2008 South Cotabato UNDP – MDG Rate of Progress (Regional result Sultan Kudarat include other provinces in the region), 2004 Region X Lanao del Norte 79.80% Data from UNDP

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Indicator Region Province Data Notes Rate (%) or Proportion of HH with sanitary toilet National 86.20% Sources: ARMM Maguindanao 49.07% Data from DOH Field Health Service Information System, DOH/RDO- Lanao del Sur 13.85% ARMM, 2008 Region XII North Cotabato 83.20% Data from UNDP UNDP – MDG Rate of Progress, 2004 South Cotabato Sultan Kudarat Region X Lanao del Norte 87.00% Data from UNDP Human Development Index National 0.751 Source: ARMM Maguindanao 0.461 UNDP Humanitarian Report, 2009 (National) Lanao del Sur 0.464 NSO Quickstat, 2000 Region XII North Cotabato 0.512 South Cotabato 0.595 Sultan Kudarat 0.554 Region X Lanao del Norte 0.553 Status of energization; % energized National 67.4% Source: ARMM Maguindanao 24.0% Including the provinces of Basilan, Sulu and Tawi-tawi ARMM Peace Summit Presentation entitled “ARMM Lanao del Sur Multi-Stakeholders’ Peace and Development Issues”, Region XII North Cotabato 49.1% Including the province of Sarangani September 2010 (data from 2007) South Cotabato Sultan Kudarat Region X Lanao del Norte 71.8% Including the provinces of Bukidnon, Camiguin, Misamis Oriental and Misamis Occidental

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3.3 Humanitarian needs of IDPs and returnees The humanitarian needs of the remaining IDPs and returnees are significant. These needs are summarised in this section but are examined in greater detail in the individual Cluster Response Plans. In general the conflict-affected provinces of Mindanao are among the poorest in the Philippines, as the indicators in the previous section show. Of these, Maguindanao stands out as the most impoverished, with an average life expectancy for males of 61 years, some 11 years less than the national average. Maternal mortality in ARMM is twice the national average. The infant mortality rate in ARMM stands at 32, whereas the national average is 24. Only 10% of people in Maguindanao are stated as having access to clean water, whereas the national average is 80%. On top of these troubling statistics, the impact of repetitive displacements combined with the most recent prolonged displacement has significantly eroded coping mechanisms of the affected population. The difficulty of re-establishing lives and livelihoods is seriously hampering the early recovery of those who have spontaneously returned over the past year. Essential facilities have been damaged by the conflict or fallen into disrepair, homes have been destroyed and farmland has become unproductive. Poor to begin with, laden with debts and having lost most of their assets, returnees are struggling to re-establish their lives and livelihoods and remain vulnerable to shocks, either from natural or man- made disasters. While governance structures remain in place down to level (apart from some barangays of return), a shortage of funding has hampered efforts to support both IDPs and returnees. Following the Suspension of Military Operations and Suspension of Military Action, humanitarian access to almost all parts of Central Mindanao has been good, apart from the period following the Maguindanao Massacre of 23 November 2009 and for short periods in areas affected by rido. The geography of some return areas does hinder access, particularly during the wet season, due to the quality of roads. Food Security and Agriculture The Emergency Food Security Assessment conducted by the World Food Programme (WFP) in January 2010 indicated that approximately 70% of IDP and returnee households were food-insecure. Of this 70%, 40% were considered to be highly or moderately food-insecure. Inadequate food consumption is prevalent among IDPs and returnees. IDPs have lost draught animals (carabao), small livestock, farm tools and fishing gear and are heavily indebted to moneylenders, banks and other credit institutions from loans taken out to plant crops that were not harvested due to displacement. Health The increased demand for services brought about by the conflict and displacement of IDPs has caused further strain on the health resources of the host communities. At the same time, the conflict has hampered the implementation of public health programmes in the rural communities. Pregnant women have been particularly vulnerable, due to lack of access to reproductive health services. Nutrition During the first quarter of 2009, UNICEF and WFP led a Joint Nutrition and Food Security Assessment covering the conflict-affected IDPs. The assessment highlighted the disparity between the national average and conflict-affected areas. Global acute malnutrition (GAM) rates of 9.8% (2006 WHO Growth Standards) were close to the threshold that requires urgent intervention (10%). Severe acute malnutrition (SAM) was as high as 2.2% (2006 WHO Growth Standards). The assessment also found that 87% of households faced food insecurity and were eating less-preferred foods while 75% were limiting their meal sizes thereby decreasing dietary diversity. Water, Sanitation and Hygiene Two years after being displaced, many IDPs still lack access to safe drinking water and adequate sanitation in Evacuation Centers and other places of displacement. Unsafe drinking water and sanitation are cited as being the causes of the ten highest cases of diseases such as diarrhoea, especially in children. In areas of return, drinking water sources and sanitation facilities have been, in many cases, damaged or have deteriorated over the past two years.

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Camp Coordination and Camp Management Progress is being made in establishing a common understanding of the different categories of the displaced or returned populations, as well as agreement amongst actors as to the most accurate figures for the caseload within each of the categories, but the task of establishing such norms remains challenging. Information exchange between IDPs, the Government and humanitarian agencies that are assisting them needs strengthening, as does the governance and representative structures of conflict-affected communities in both places of displacement and of return. Many IDPs and returnees have inadequate shelter. Most temporary and permanent shelters are constructed of local materials and rapidly become dilapidated in the tropical climate. Education Assessments conducted by Education Cluster members and the Department of Education (DepEd) ARMM, found that around 70,000 children were affected by the 2008 armed conflict. Various assessments conducted subsequently by cluster members indicate that IDP children have poor access to education due to prolonged displacement, destruction and damage to school buildings, the distance of schools from Evacuation Centers, overcrowded classes, poor health and the need to work in order to provide family income. Protection At the policy level, the incomplete national IDP policy framework and legislation hinders the ability of humanitarian actors to work with the Government in relation to displaced populations. Although there has been some improvement, a better understanding of a voluntary returns process is still needed. A number of specifically vulnerable groups have been identified (widows, children associated with armed groups, survivors of sexual and gender-based violence (SGBV) requiring assistance, and the elderly and disabled), yet disaggregated data or clear information on their needs is not available. Children and their caregivers from these communities are suffering from profound distress because of their prolonged displacement and unstable conditions. The potential for child abuse and exploitation is high, as is the risk of children being recruited by armed groups or falling victim to child traffickers. Early Recovery The priority early recovery needs of the returning IDPs centre on the lack of livelihoods opportunities, resources, essential infrastructure and the capacity of the local authorities to coordinate initiatives. In many cases, almost all of the IDPs’ meagre resources have been depleted through almost two years in Evacuation Centers. While some of the IDPs have managed to retain their farm animals and basic farm tools, they lack other skills and resources, including seeds and other agricultural inputs. Early recovery has been mainstreamed into all of the cluster response plans and activities will, to the extent possible, support the ARRM Early Recovery Plan. Ensuring sustainable returns through effective early recovery interventions will also support the goals of the PAMANA Programme by helping to build resilient communities and providing a solid foundation for peace-building activities.

22 Mindanao Humanitarian Action Plan 2011 4. Scenarios

The following paragraphs outline three potential scenarios for conflict-affected provinces that may arise in 2011: Best-case scenario The Government Suspension of Military Operations and MILF Suspension of Military Action continue to hold and negotiations lead to a peace agreement being concluded in early-mid 2011. The increased deployment of the International Monitoring Team and the associated Civilian Protection Component leads to greater confidence on the part of the parties and the population. Efforts to disarm and demobilise private armed groups are successful, reducing instances of banditry and armed clashes/rido. The trial of those held responsible for the Maguindanao Massacre of 23 November proceeds smoothly. IDPs continue to return to their places of origin or to permanently resettle elsewhere and are successful in recovering their livelihoods. By the end of the first quarter of 2011, there are few IDPs located in either Evacuation Centers or host communities. There are no natural calamities, such as flooding, earthquakes, landslides or tsunamis, during this period. The Government and humanitarian community agree on a policy framework for returns and resettlement that adhere to humanitarian principles and the Guiding Principles on Internal Displacement. Government capacity to respond improves and there is strengthened cooperation with the humanitarian community. Coordination mechanisms, built around the cluster system, are consolidated and improved. Humanitarian assistance focuses increasingly on early recovery and transitions over time to a development phase. Humanitarian access further improves and all of the humanitarian caseload can be accessed, with the exception of those in Sulu and Basilan. Most likely scenario Peace negotiations between the GRP and MILF continue but without a final peace agreement reached during 2011. The issues are complex and negotiations have gone on for many years without a final resolution. Multiple potential spoilers exist on both sides that can easily frustrate the ratification of tentative agreements that may be reached. There exist further difficulties in that any GRP-MILF agreement would need to be in line with the Final Peace Agreement signed in 1996 between the GRP and the MNLF. Despite the lack of agreement, the MILF manages to contain potential spoilers on its side and there is no significant violence associated with the GRP-MILF conflict. There will be a heightened international awareness of the peace process through the work of the International Monitoring Team, International Contact Group and Civilian Protection Component. It is assumed that this will create more humanitarian space for civil society organizations in conflict-affected areas. The ARMM Government elections take place in April 2011, as planned, with some violent clashes before and after the election day but no generalised violence throughout ARMM and North Cotabato (as was the case during the barangay level elections of October 2010). The Government elections do not cause any significant new displacement, nor impact negatively on humanitarian access. Violent clashes concerning rido continue periodically and cause localised, temporary displacement. The displaced population in the Evacuation Centers continues to drop, with most IDPs returning to their places of origin. Some elect not to return, however, due to fear of insecurity and a lack of adequate support to sustain their return. In such cases, IDPs remain where they are, relocate to other Evacuation Centers, choose to live temporarily in resettlement centres or set themselves up temporarily in host communities. It remains challenging for the Government and humanitarian community to determine accurate numbers of IDPs and to identify those requiring assistance. The United Nations (UN) agencies and NGOs continue operations in 2011 with programmes increasingly focussed on early recovery. Financial support from donors decreases, due to the shift to early recovery.

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Heavy rains cause flooding in certain areas during the monsoon season, causing temporary displacement and some destruction to property and crops. However, there is no major natural calamity during this period. Worst-case scenario The peace process between the GRP and the MILF either stalls or breaks down completely. Factions within the MILF renew military operations against the GRP, and the Armed Forces of the Philippines responds with large-scale operations. There is significant fighting across Central Mindanao, causing displacement from interior barangays to main highways and towns. This displacement might last for years, with humanitarian needs exceeding available capacities and resources. Many of those displaced may never return to their places of origin, due to fears of continued insecurity. Natural disasters, including flooding and associated landslides, exacerbate the effects of the conflict on the population. Humanitarian consequences include: • Large-scale displacement (up to 1,000,000 individuals); • Loss of life and injuries, particularly within vulnerable groups (such as pregnant women, young children, the disabled and elderly, people requiring urgent medical attention); • Unacceptable humanitarian conditions in places of displacement; • Acute lack of health, water, sanitation and hygiene facilities; • Increased disease outbreaks in IDP locations; • Destruction of homes and infrastructure, loss of property; • Severe loss or degradation of livelihoods; • Severe food insecurity, both short-term and longer-term; • Exponential increase in acute malnutrition; • Severe disruption to basic services; • Drastic diminution of government capacity in affected areas; • Major protection issues, including cases of sexual and gender-based violence; • Destruction of road, transport and communications infrastructure; and • Severe restrictions on the movement of humanitarian agencies and government departments.

24 Mindanao Humanitarian Action Plan 2011 5. Strategic Objectives

During the Humanitarian Action Plan Workshop on 2 August, government partners from ARMM and Region XII, together with the international humanitarian community (UN agencies, international organizations and international NGOs) and local NGOs, determined the following strategic objectives for the HAP: 1. To support the Government to address the humanitarian needs of affected populations in a timely manner. 2. To establish an enabling environment for the implementation of durable solutions for affected populations. 3. To develop the capacities of local Government and communities to respond to emergencies and manage their early recovery. 4. To establish structures and mechanisms to ensure the protection of vulnerable individuals and groups. Using these strategic objectives as a basis, the eight clusters worked to develop the cluster objectives, indicators and targets summarised in the table overleaf. These objectives, indicators and targets have also been adapted, as necessary, to ensure their compatibility with the ARMM Early Recovery Plan and the PAMANA Programme, both of which were subsequently launched. The link between cluster plan objectives and the above strategic objectives is summarised in the following pages.

Strategic Corresponding Cluster Response Plan Objectives Objective 1. To support the CCCM • To collect, track, analyse and disseminate information concerning Government to IDPs and returnees for the use of the humanitarian community and address the other stakeholders. humanitarian Education • To increase the access of internally displaced children to needs of affected educational services. populations in a • To support the provision of services with other clusters that timely manner. increase access to and quality of education for affected children. Food Security • To ensure adequate food consumption for targeted beneficiaries. and Agriculture Health • To ensure the provision of essential public health services, including reproductive health, in IDP sites and return areas. • To strengthen health sector referral system. Nutrition • To assess in a timely manner the nutritional status of IDPs and host communities, including score and severity of the nutritional situation, causes of malnutrition and contextual factors, to inform decision-making and response. Protection • To ensure the development of a protection environment in which protection principles are recognised and applied in all humanitarian responses. • To establish needs of returning IDP population and to strengthen community self-reliance and livelihood opportunities. • In relation to child protection: o To prevent and address the separation of children and the promotion of family-based care. o To provide psycho-social support to children and their caregivers. WASH • To ensure those in IDP sites and in return areas have access to essential WASH services at levels that meet commonly agreed standards.

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Strategic Corresponding Cluster Response Plan Objectives Objective 2. To establish CCCM • To ensure that displaced families have adequate emergency an enabling shelter. environment for Early Recovery • To ensure the integration and mainstreaming of early recovery the aspects in interventions of all clusters. implementation of • To support early recovery and reintegration initiatives by the durable solutions affected communities themselves. for affected • To promote sustainable non-agricultural livelihoods, essential populations. infrastructure and environmental initiatives in IDP sites and return areas. Food Security • To increase the access of targeted communities to assets in and Agriculture fragile, transition situations. Nutrition • To ensure the availability of appropriate and comprehensive treatment of acute malnutrition for IDPs and host communities. Protection In relation to child protection: o To establish a mechanism to systematically monitor and report and trigger response to grave rights violations and protection concerns of children and women. o To prevent and address the recruitment and use as well as the arbitrary arrest and detention of children. o To raise awareness and responds to incidence of UXOs and other indiscriminate and illicit weapons. 3. To develop CCCM • To support the implementation of relevant policies and the capacities of establishment of protection mechanisms relating to site local government management of displaced populations. and communities Early Recovery • To strengthen capacities of local government, local leaders and to respond to other stakeholders for effective emergency response and emergencies and management of early recovery and provide a solid foundation for manage their peace building early recovery. Education • To enhance the capacity of teachers, day-care workers and volunteers on Education in Emergencies standards. • To increase the knowledge and acceptance of education services on the part of affected communities. Food Security • To enhance the skills of targeted communities thus improving their and Agriculture resilience to shocks. Nutrition • To ensure the promotion, support and protection of appropriate infant and young child feeding (IYCF) practices among IDPs and host communities. Protection In relation to child protection: o To establish community based child protection systems in affected areas. o To establish with Government effective leadership on child protection group area of responsibility with links to other clusters/sector mechanism on critical inter-sectoral issues. o To build the capacities of LGUs and communities to provide child protection response during emergencies. o To prevent and address the violence, exploitation and abuse of children and women, including GBV. WASH • To build the capacity of local Government and communities to operate and maintain WASH facilities to ensure sustainability.

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Strategic Corresponding Cluster Response Plan Objectives Objective 4. To establish CCCM • To ensure that site management mechanisms are established. structures and • To ensure agreed shelter standards (size, material, cost and mechanisms to methodology) are adopted amongst the shelter actors to ensure ensure the equity of response. protection of Education • To support Education in Emergencies policies and standards, to vulnerable include mainstreaming, accreditation and promotion of children individuals and attending alternative modes of education. groups. Food Security • To increase the attendance of pregnant and lactating women at and Agriculture health centres. • To increase the enrolment of children, including IDPs and returnees, in schools assisted by the Food Security and Agriculture Cluster. • To strengthen the public and community based institutions responsible for sector development and service provisions (e.g. extension). • To increase food production among resettled and returnee households. Nutrition • To ensure that children and pregnant and lactating women have access to micronutrients from fortified food, supplements or multiple micronutrient preparations. Protection • To ensure the existence of protection mechanisms capable of providing support in a timely manner, through effective coordination, clear referral pathways, early warning and response and identification of vulnerable groups. • To ensure the provision of essential protection services in IDP sites and return areas to all children, women and other vulnerable groups. o To establish community based child protection systems in affected areas. o To establish with Government effective leadership on child protection group area of responsibility with links to other clusters/sector mechanism on critical inter-sectoral issues. o To build the capacities of LGUs and communities to provide child protection response during emergencies. o To prevent and address the violence, exploitation and abuse of children and women, including GBV.

2 7 Mindanao Humanitarian Action Plan 2011 6. Humanitarian agencies and coordination

6.1 Coordination Cluster system Since 2008, the Government of the Philippines has adopted the humanitarian cluster approach through a series of circulars from the National Disaster Coordination Council (NDCC), now the National Disaster Risk Reduction and Management Council (NDRRMC). The ARMM Government has established eight clusters for humanitarian response that are the main means by which humanitarian assistance is coordinated for the province of Maguindanao. These eight clusters are: • Camp Coordination and Camp Management (CCCM); • Health; • Water, Sanitation and Hygiene (WASH); • Education; • Nutrition; • Protection • Food and agriculture; and • Early Recovery. The Sexual and Gender-Based Violence Sub-Group and the Child Protection Network report through the Protection Cluster. There is also a Reproductive Health (RH) Sub-Cluster under the Health Cluster. Agriculture is discussed at the Food Cluster (discussion is ongoing regarding formalising the forum for coordination of agriculture). Each Cluster/sector at the Mindanao level is led by a government department and co-led by a UN agency or other international humanitarian actor, as per the table below. Cluster/Sector Government Lead MHT Lead Support Agencies Humanitarian Coordination TMS-ARMM OCHA RDRRMC Security J-CCCH UNDSS Camp Coordination and DSWD IOM UNHCR, CFSI, MTB , KFI, Management ACF, Oxfam, NRC Food DSWD WFP ACF, CFSI Health DoH WHO UNFPA, Save the Children WASH DoH-ARMM UNICEF WHO, IOM, Oxfam, ACF, MTB, KFI, ASDSW, DILG, DPWH, IPHO, RHU Protection UNHCR IOM, UNICEF, OCHA, WFP, UNFPA, KFI, MTB, CFSI, MSF, Save the Children, MinHRAC, NRC Agriculture DAF-ARMM/DA FAO WFP, UNDP, ILO, UN- HABITAT, Provincial Local Government Units Early Recovery and Livelihoods DSWD (livelihoods UNDP OCD, FAO, WFP, UNHCR, and non-food items) OCHA, IOM Education DepEd UNICEF CFSI, DSWD Save the Children Nutrition DoH UNICEF Save the Children, ACF, MTB, MYROi, CFSI, MTB, WHO, WFP, OCHA Logistics OCD WFP NDRRMC Clusters meet monthly to share updates, identify gaps and plan interventions. The clusters worked together to design cluster response plans within the HAP and review project proposals of cluster members. The cluster reporting arrangements are shown in the diagram overleaf.

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Disaster Risk Reduction and Management Councils The Clusters operate in accordance with the relevant laws of the Republic of the Philippines, including the Republic Act No. 10121, which defines the GRP’s law on disaster risk reduction and disaster management.17 The Regional Disaster Risk Reduction Management Councils (RDRRMC) in Regions X, XII and ARMM are the principal coordinating bodies for humanitarian action within the respective regions, acting in support of Local Government Units. In ARMM, the RDRRMC is chaired by the of the ARMM, or an official designated by the Governor. ARMM RDRRMC meetings are attended by government officials, and usually the heads, of government departments that have responsibilities related to humanitarian issues, representatives of the Armed Forces of the Philippines, Philippine National Police, UN agencies and NGOs. Although reporting tends to take place by agency and department rather than by cluster, the RDRRMC performs the function of inter-cluster coordination. The Technical Management Services (TMS) of the Office of the Regional Governor (ORG) provides the secretariat function for the RDRRMC. During the first half of 2010, the RDRRMC met once or twice each month to coordinate support for the return of IDPs to their places of origin, the dominant dynamic during this period. The Office of Civil Defense (OCD) in ARMM, which acts as the secretariat for the RDRRMC in ARMM, has recently been activated. This development should enhance coordination of humanitarian matters in ARMM. Mindanao Humanitarian Team The Mindanao Humanitarian Team is composed of UN agencies, international organizations (including components of the Red Cross / Red Crescent Movement, subject to their particular mandate), international NGOs and local NGOs that are participating in humanitarian action in conflict-affected provinces of Mindanao. The forum meets every two weeks in Cotabato City. OCHA provides the secretariat function for the MHT, meetings of which are chaired by the Head of the OCHA sub-office. Reporting at MHT meetings is by organization but the meetings also serve an inter-Cluster coordination purpose.

17 The legislation identifies and mandates the Disaster Risk Reduction and Management Councils at local to national level as the main bodies with responsibility for supporting LGUs to respond to humanitarian disasters.

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30 Mindanao Humanitarian Action Plan 2011

6.2 Humanitarian agencies At the time of the conflict in August 2008 the humanitarian community in Mindanao was small and most UN agencies did not have offices in Cotabato City. Some managed programmes in Mindanao from offices in Manila and Davao, which enabled them to deploy staff to Cotabato City when the emergency hit. Many participated in a joint UN Country Team assessment in September 2008. Over the past two years, the humanitarian community has grown significantly and UN humanitarian agencies have opened up offices in Cotabato City to manage key response activities in the conflict- affected provinces of Mindanao. Some agencies also have offices elsewhere in Mindanao. OCHA established a sub-office in Cotabato City in July 2009 to strengthen humanitarian coordination and facilitate a targeted response that analyses the situation and addresses gaps, with five staff focused on humanitarian coordination, response and preparedness planning, inter-cluster coordination and information management. WFP has had staff based in Mindanao since 2006, with offices in Cotabato City, Iligan and Davao managing both humanitarian and development programmes. WFP currently has 57 staff in Central Mindanao: 41 in the Cotabato City sub-office and sixteen based in the Iligan sub-office. IOM is one of the largest agencies based in Mindanao. Its Mission with Regional Functions had been monitoring the situation in Mindanao when the conflict erupted in August 2008, and IOM moved rapidly to establish sub-offices in Cotabato City and by the end of October 2008. Staffing built up rapidly after the initial crisis but was reduced recently due to funding shortages. IOM anticipates maintaining a staff of around 36 in Cotabato City if its projects are fully funded. WHO was managing a malaria programme in Mindanao at the time of the August 2008 conflict. WHO’s Cotabato City office opened in April 2010, with a permanent presence of two staff members. Prior to that, WHO supported the conflict-affected provinces in Mindanao with four staff members based in Manila who visited the island regularly and worked out of the office of Department of Health (DoH) Health Emergency Management Staff. UNDP established a permanent presence in Mindanao in June 2010, when it opened an office in Cotabato City for Early Recovery coordination, but had been active in the conflict-affected areas of the region for many years. The Strengthening Response to Internal Displacement in Mindanao (StRIDe Mindanao) programme, as part of the Action for Conflict Transformation (ACT) for Peace Programme, began in 2009. UNDP anticipates that it will increase its presence in Mindanao as the focus of the response focuses increasingly on early recovery activities. UNICEF has been implementing its Country Programme for Children in Mindanao since the early 1990s. In 2005 UNICEF established a Mindanao Desk situated at the Regional Planning and Development Office of ARMM in Cotabato City, and in late 2009 UNICEF established a Zone Office in Cotabato City, with a total of 12 staff including two expatriates. UNICEF currently has five international staff at the Cotabato Zone Office. The Zone Office is focused on child protection, WASH, nutrition and education programmes, especially related to emergencies. UNFPA established a Southern Philippines Office in Davao City in August 2005 to manage its Country Programme for six provinces of Mindanao: Lanao del Sur, Maguindanao, Tawi-Tawi, Sulu, Sultan Kudarat and . UNFPA also installed a satellite office in Iligan City, co-located with WFP, to manage programme operations in Lanao del Sur. In response to the conflict, UNFPA started to implement a humanitarian response program in Maguindanao, Lanao del Sur, Sultan Kudarat and North Cotabato catering to the sexual and reproductive health needs of the IDPs. UNFPA opened a satellite office in Cotabato City in March 2010. Southern Philippines Office has nineteen regular staff of which sixteen are deployed in the five provinces. UNHCR opened its office in Cotabato City at the beginning of May 2010 and has been gradually building up its presence. UNHCR has four expatriate and ten local staff members, with further staff under recruitment. FAO appointed a fulltime staff member based in Cotabato City in July 2010 to implement an agricultural project funded by the UN Central Emergency Response Fund (CERF).

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In addition to the UN agencies, INGOs including Action Contre la Faim (ACF), Oxfam, Médecins Sans Frontières (MSF)18 and Save the Children have been supporting humanitarian activities since 2008. Nonviolent Peaceforce (NPP) and the Norwegian Refugee Council (NRC) opened offices in 2010. There are also several community based civil society groups and local NGOs that play a critical role in the humanitarian response, including Community and Family Services International (CFSI), Mindanao Tulong Bakwet (MTB), Kadtuntaya Foundation Inc. (KFI), Mindanao Human Rights Action Centre (MinHRAC) and Muslim Youth Religious Organisations Incorporated (MYROi).

18 MSF closed its conflict response operations in November 2010 but keeps a presence in the country to monitor the situation and to keep the capacity to respond to emergencies.

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7. Cluster response plans

7.1 CCCM CCCM Cluster Response Plan: summary Cluster Lead Agency(s) DSWD, IOM Implementing Agencies NRC, Oxfam, MTB, ACF, CFSI, WFP, UNHCR Number of Projects Three Cluster Objectives 1. To collect, track, analyse and disseminate information concerning IDPs and returnees for the use of the humanitarian community and other stakeholders. 2. To ensure that displaced families have adequate emergency shelter. 3. To support the implementation of relevant policies and establishment of protection mechanisms relating to site management of displaced populations. 4. To ensure that site management mechanisms are established. 5. To ensure agreed shelter standards (size, material, cost and methodology) are adopted amongst the shelter actors to ensure equity of response. Total Number of Beneficiaries 38,948 Funds Requested $4,435,700 Funds requested per priority level Returnees: B-High $2,094,800 Returness: A-Immediate $984,905 IDP/Host Communities. B-High $1,355,995 Contact Information Jasper Llanderal ([email protected]) Needs analysis Two years after the onset of the complex emergency situation in Mindanao, while a number of displaced families still remain in Evacuation Centers and living with host families, the vast majority have returned to their communities of origin. In a recent assessment conducted by IOM of 66 IDP sites in the province of Maguindanao, a total of 8,149 families (out of 9,430 families) were verified to have returned to their sitio of origin and the remaining 1,281 families have returned to their barangay of origin but not yet to their sitio of origin. Most of these returns have been spontaneous and relatively little support has been provided either by government departments or humanitarian agencies. Results of recent assessments of returned families suggest that they face considerable challenges in making their return sustainable. All assessed and verified families have had their Family Access Cards stamped “returned.” The Disaster Assistance Family Access Cards (DAFAC) is the official registration card that DSWD issues to displaced families at the onset of a disaster or evacuation. The NDCC through the Joint Memorandum Circular No. 17 mandated DSWD to utilise the form for registration, monitoring and reporting. This card is meant to be proof of being displaced and thus being eligible for assistance. The process of registration is managed by the Municipal Social Welfare Officer in collaboration with local government officials (especially the and/or site management leaders). Each family is entitled with one card containing the demographic profile of the family and family members. The card is signed by the Municipal Social Welfare Officers that authenticate the eligibility of the families to receive assistance. Municipal Social Welfare Officers have duplicate copies of all the access cards distributed to each family. The back of the card reflects the assistance extended by the Government and other donors. It has been used as a basic data source document concerning beneficiaries. It is also used for validation of IDP status. In the delivery of assistance, most humanitarian agencies have asked the IDP families to present their access cards to validate the information written thereon and to ensure that the family received assistance. Many IDP families that had returned were found not to have received a sufficient level of assistance. The DSWD has provided return assistance packages consisting of food rations and core shelters, known as a ‘pabaon’ to only a very limited number of families. The remainder of the limited assistance received by returning IDP families has been provided by humanitarian aid agencies, including WFP, ACF, MTB, Oxfam, KFI, CFSI, GRP-UN ACT for Peace, The Asia Foundation, MSF, the United Youth for Peace and Development (UnYPAD), UNFPA and UNICEF. Some IDP locations are being served by the Integrated Provincial Health Office (IPHO) and the Department of Agriculture and Fisheries (DAF).

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From the beginning of 2009, there has been a gradual movement of IDPs towards their places of origin. It has not been possible to determine with accuracy the level of voluntariness of this movement. To date, IDPs are scattered across Evacuation Centers, relocation sites, resettlement sites as designated by the Government and return areas. As of 17 December 2010, the Mobile and Vulnerable Persons tracking report of IOM reported that there were a total of 2,549 families (12,332 individuals) in 17 Evacuation Centers. While the bulk of IDPs are found in the province of Maguindanao, there are remaining IDPs in the provinces of Sultan Kudarat, South Cotabato, North Cotabato, Lanao del Norte and Lanao del Sur. With the exception of Maguindanao, all other provinces have identified IDPs as having returned, or continuing to stay with relatives and host families. In the two provinces of Lanao del Sur and Lanao del Norte, IDPs have normally refused to stay in Evacuation Centers designated by the Government due to cultural considerations, considering residence within an Evacuation Center as dishonourable. Compounding an already complex situation has been the sharp increase in the incidence of rido. Based on an IOM Mobile and Vulnerable Populations (MVP) Tracking Report of 23 July 2010 and a report from the J-CCCH, there were 24 reported cases of clan violence in the province of Maguindanao alone during 2010. As of July 2010, rido had displaced around 32,000 individuals. There is limited information, however, on displacements (caused by either rido, natural calamities or armed conflict) in the provinces of Lanao del Sur, Lanao del Norte and South Cotabato as no agency has responsibility for documenting or tracking of IDPs in these provinces. As a result of a joint focus group discussions conducted by the DSWD-ARMM and the ACT for Peace Programme in March 2010, 5,414 IDP families (out of 16,131) were said to have expressed their willingness to return to their places of origin. The remaining 10,717 families expressed unwillingness to return home due to reasons of uncertain security situation of their places of origin. In some return areas, combatants (both from Armed Forces of the Philippines and MILF) were believed to be active. The difficulty in re-establishing a livelihood was also expressed as a key concern preventing returns. For some, the unwillingness to return to places of origin was due to the lack of an appropriate home in which to live as their original houses have either been damaged or had become dilapidated. Lastly, the joint focused group discussion results found that limited access to basic services such as education, health and food was seen as major obstacles to return to places of origin. From the time that IDPs started to return to their places of origin, numerous needs have been identified by various agencies through assessments, reports and in cluster meetings, which the focused group discussion also highlighted. These needs include security, material provision, basic services and livelihoods. Among the issues, concerns and needs that have been identified, the major ones of direct relevance to the CCCM Cluster are: • The need to strengthen information sharing and community preparedness mechanisms, with a focus on disaster risk reduction (DRR), which will be integral to the success of returns. There is a need to conduct formal and informal capacity building activities concerning disaster preparedness and disaster risk reduction and other relevant topics to ensure active participation of key community leaders, including Site Management Committees and the CCCM Cluster. Basic life saving capabilities should be developed and integrated within the overall CCCM perspective. Aside from the Local Government Units (LGUs), Site Management and CCCM structures should be strengthened at IDP locations to ensure that basic services delivered by the Government and humanitarian agencies are properly channelled so that the correct beneficiaries receive appropriate assistance. • In parallel with capacity building efforts, there is a need to conduct an inventory of community governance structures in all locations (Evacuation Centers, relocation, resettlement and return sites) to understand better the coping mechanisms of affected families while in displacement or during return so that appropriate support may be provided to them. Local governance institutions, such as a Barangay LGU and Barangay Disaster Risk Reduction and Management Council will be considered as the primary interlocutors for capacity building endeavours. • The provision of information concerning IDP locations to humanitarian agencies and government bodies, through regular reporting and circulation of IDP Updates must be improved. Likewise, a feedback mechanism from humanitarian agencies to IDPs must be established to ensure that the rights of IDPs to receive to information are upheld. The same practice is needed to be established with government counterparts so that IDPs are able to make informed decisions, for example as to whether to remain in IDP sites or to return to their homes. • The Government has limited access to some return areas for several reasons:

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o Insufficient financial and material resources to support IDPs and returnees and a lack of transportation; o Lack of access to areas controlled by the MILF; o Insufficient human resources, e.g. one MSWO is assigned to cover two or three municipalities with IDP response being only one of the many mandates of the DSWD. • Due to these limitations, there is a need to strengthen the cluster approach through sharing of information and more effective coordination. The CCCM Cluster is a potentially effective and efficient means by which to share resources and identify opportunities to benefit IDPs and returnees. The CCCM Cluster is able to augment and complement the capabilities and resources of DSWD. There is a need to establish strong referral mechanisms between the CCCM and other clusters to ensure that humanitarian assistance is properly targeted. Through the Cluster, there is a need to identify neutral and impartial organizations that can provide humanitarian assistance to communities living in areas controlled by the MILF. While sharing of information is vital, it is also important to consider confidentiality. At the community level, Barangay LGUs and community leaders should be supported in mobilising communities to support themselves. • In order to improve information exchange between humanitarian agencies and IDP and returnee communities and to coordinate humanitarian assistance to the latter, it is desirable that a Site Focal Agency (SFA) be designated for each location. An SFA might be a government entity or a humanitarian agency acting as the focal point for a particular IDP location or cluster thereof. The Terms of Reference (ToR) for SFAs have yet to be finalised and adopted by relevant authorities, particularly the RDRRMC of the affected regions. The CCCM Cluster needs to be strengthened and better linked to the RDRRMC and its members. • Policies and laws relating to IDPs in Mindanao require the leadership and approval of the national government. The current initiative of the DSWD national office to enhance Administrative Order No. 36 of 1994, also known as the ‘Guidelines on the Management of Evacuation Center/Emergency Shelter’ should be supported. There is a need to conduct re- orientation on Administrative Order No. 36 among cluster members and also provisions of any newly issued relevant administrative orders need to be disseminated down to municipal and barangay levels with the active participation of concerned entities such as the Department of Interior and Local Government (DILG) and DSWD. Concerned agencies should develop information materials and disseminate these to ensure that the Administrative Order No. 36 is integrated within LGU policies and plans. Beneficiaries

Affected population19 Beneficiaries Location Female Male Total Female Male Total

Maguindanao 140,898 93,932 234,830 14,090 9,393 23,484

North Cotabato 76,884 51,256 128,140 7,689 5,126 12,815

South Cotabato 2,043 1,362 3,405 205 136 341

Sultan Kudarat 16,611 11,074 27,685 1,301 868 2,169

Lanao del Sur 831 554 1,385 83 56 139

Lanao del Norte

Total 237,267 158,178 395,445 23,368 15,579 38,948

19 Based on IOM data of September 2010.

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Review of progress to date The CCCM Cluster was formally established in Maguindanao and North Cotabato provinces in November 2008. Since this time, the CCCM Cluster has provided all stakeholders with a venue to better coordinate the implementation of projects, share information and collectively respond to camp coordination and camp management concerns. By mid-2009, the North Cotabato CCCM Cluster reduced its frequency of meetings due to the lower concentration of INGOs and UN agencies in the province of Maguindanao. This shift was brought about by mostly funding limitations on the part of INGOs and other humanitarian agencies. From the cluster’s establishment, several activities and accomplishments have already been achieved collectively by the members. As part of the cluster’s role, several capacity building activities have been conducted for the members and the biggest capacity building activity that the cluster have organized was the CCCM training held in January 2010 in Davao City. The training was done in cooperation with the NRC. The training was attended by representatives from government, non- government (international and national) and UN agencies. The result of this training includes the active participation of the cluster members in providing inputs to the DSWD for the revision and enhancement of their Executive Order related to the proper management of Evacuation Centers. In addition, the Cluster has been a significant participant in the provision of inputs into the drafting and finalization of the ARMM Early Recovery Plan. The inputs of the CCCM Cluster provided some level of assurance that camp management activities are integrated into the said plan. The Early Recovery Plan is currently being reviewed by the national government for funding allocation. The Cluster continues to increase its number of participating agencies. In the regular meetings, participating agencies include government agencies such as the DSWD, TMS of the ARMM Government, Department of Health, OCD, NGOs such as MTB, KFI, and Kutawato Coalition of Development NGOs (KCODE), Central Mindanao Integrated Livelihood and Alternative Resource Development (CEMILARDEF) and international humanitarian organizations (IOM, WFP, NPP, UNICEF, CFSI, OXFAM GB, ACF, UN Act for Peace, NRC, UNHCR and OCHA). The Cluster continues to sustain and strengthen the venue and mechanism for coordination among its members. Monthly meetings, special meetings and small group sessions have been regularized and is seen to have improved communication among different agencies and stakeholders. Relevant issues and concerns are being raised and discussed, decisions are being made, humanitarian standards are advocated and agreements have been made through this venue. Other accomplishments that the Cluster has attained since its establishment in 2008 include: • Continuous provision of situational updates: The forums have been a venue for regular updates among the humanitarian players wherein respective agency’s interventions, accomplishments, activities as well as figures are presented. These guided the different partners in programming of interventions and delivery of assistance to avoid duplication and filling up in gaps. Further updates from partners eventually became an input to the Humanitarian Situation Reports submitted to OCHA for consolidation and dissemination at the higher level • Installation of the Humanitarian Response Monitoring System in DSWD-National: The Cluster recognized the need to come up with supporting mechanisms to assist the MSWO20 in data gathering, tracking IDP movements, monitor coordination activities and delivery of assistance and in identifying gaps. To address this, HRMS was initiated by IOM in collaboration with DSWD and the CCCM Cluster. HRMS is a web data based where in information gathered from the site level are to be inputted into the system for easy access and generation of reports. This was installed already to the DSWD national office through the Memorandum of Cooperation and will be mainstreamed in the regional offices. • Development of an Information Matrix: There has been confusion in terms of names and exact geographic locations of the sites, thus the cluster come up an information matrix indicating the name of the province, municipality, barangay and the official name of IDP site so that there is a common name among the sites. The matrix provided input and became the data provided to the 3W Information Management Tool developed by OCHA.

20 The MSWDOs are in charge of IDP profiling, validations of numbers, issuance of access cards and coming up with a regular and updated IDP reports.

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• Identified IDP site focal agency and terms of reference: With the limitations of the MSWOs to manage the numbers of camps per municipality, the Cluster agreed to identify partners to become a camp management or site focal agencies in charge of the daily management activities in certain IDP sites (such as data gathering and updating, needs and gaps assessment, ensuring IDP participation and coordinating assistance and protection). The agencies that have committed to be site focal agency in the Province of Maguindano include IOM, ACF, MTB, KFI and KCODE covering 45 IDP sites. The ToR has been drafted already and awaits finalization through the cluster. The Cluster liaised with the Municipal Mayors of the different municipalities in North Cotabato to explain the essence and purpose of identifying the focal agencies and camp management and camp coordination activities. This process gained the support of the Mayors for the initiative and facilitated the identification of focal agencies. • Conducted joint activity in assessing IDP intent: With the plans of the government to let the IDPs return to their places of origin, resettlement and relocations, the cluster members participated in the conduct of key informant interviews and focus group discussions to identify the willingness to the IDPs to return or be resettled. • Ninety site management committees have been established and organized: In the province of Maguindanao, IOM have organized a total of 90 site management committees from the month of July to date. • 108 Site Windows available: Through the IOM’s MVP teams, at least 108 site windows have been produced. The site window is a document that provides a snapshot of the situation of a specific IDP site, whether it be an Evacuation Center, a relocation site, a resettlement site or a return area. The site window provides basic quantitative and qualitative information on the various sectoral concerns (e.g. WASH, livelihood, health, nutrition, food, etc). The 108 site windows produced are for Maguindanao alone; in 2008 and all throughout the first half of 2009, at least 181 site windows were compiled, covering IDP sites in North Cotabato, Sultan Kudarat, Lanao del Sur and Maguindanao, but some were discontinued due to funding shortages. • Shelter materials provided: Through the CCCM Cluster, various shelter materials have been provided to IDPs by member agencies. Shelter materials include tarpaulins, “nipa” and “kalakat” for IDPs in Evacuation Centers and relocation sites. For resettlement sites, shelter material augmentation is provided and materials include “nipa”, “kalakat”, G.I. Sheets, nails, cement, plywood and hollow blocks. • Non-Food Items provision: Non-food items (NFI) provided through the CCCM Cluster includes mats, mosquito nets, kitchen utensils, water containers, information kits like information boards and writing materials for the CCCM site management committees and start-up livelihood support such as rice and corn seeds, and gardening tools. In order to have continuous information from the ground, the IOM deploys its MVP mobile teams at least nine field work/missions every week. Cluster objectives The CCCM Cluster plans to achieve the overall strategic objectives through five linked objectives (see summary window on page 33), acknowledging that effective coordination with other clusters (i.e. WASH, Food Aid, Nutrition and Logistics) is key to its success. Central to the formulation of the cluster’s objectives and in line with the principle of supporting government, is the careful consideration of existing plans and programs of government entities also providing assistance to IDP communities and conflict affected areas in Central Mindanao. Among the various programs of government departments and other government entities the ARMM Government which has jurisdiction over the ARMM areas particularly Maguindanao Province has formulated an Early Recovery Plan. The goals, objectives and purposes outlined in this plan has been one of the major guiding document that this Cluster Response Plan made sure to be consistent with especially for interventions that will be implemented within ARMM jurisdiction like Maguindanao and Lanao del Sur. For interventions in North Cotabato, Sultan Kudarat and Lanao del Norte, coordination and consultation with local authorities as well as regional authorities have been made ensuring that the major direction that the cluster is taking does not go in a different direction but complements the over- all response direction of the authorities.

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The first objective is for the Cluster to support the Government and humanitarian agencies in providing humanitarian assistance through improved information management. The CCCM Cluster will provide a service to all other clusters in providing basic qualitative and quantitative information concerning the condition of IDP communities, whether in Evacuation Centers, relocation sites, resettlement sites or return areas. Through improved systems for collecting, collating and disseminating information relating to beneficiaries, humanitarian agencies and government entities will be better placed to plan, respond, implement and provide required services in the most effective and appropriate way. The second objective is to ensure that IDP communities are provided or augmented with shelter materials. One of the main reasons for IDPs not wanting to return to their places of origin is the absence of a decent home to go back to. The third objective is to support the implementation of relevant policies and establishment of protection mechanisms relating to the management of sites where IDPs are residing. Given the limitations in resources and capacities of stakeholders, including the Government, IDPs at this juncture are in a phase of spontaneous return. However, little assistance is being provided to IDP communities to assist their early recovery. Recognising the potential for the further displacement of IDP communities, either through conflict or natural hazards, Disaster Risk Reduction Councils will be organised, their members will also be trained. In addition, the Cluster will advocate for changes to the policy environment, through the review and enhancement of existing policies related to the management of IDP sites, ensuring the principles of IDPs are upheld. In line with the need to establish structures and mechanisms to ensure the protection of vulnerable individuals and groups, the fourth objective of the Cluster is to ensure the establishment of site management committees. Management of IDP sites has been one of the challenges of humanitarian assistance in Mindanao. By designating site management committees and/or site focal agencies, delivery of humanitarian assistance should be better managed and thus mitigate the possibility of confusion on the part of IDPs (recipients of aid) or duplication in assistance rendered thereto. Finally, the fifth objective will ensure that shelter provision, whether in place of displacement or return, is need based and equitable to ensure a coherent and consistent response from the humanitarian community. The key priorities for the CCCM Cluster in Mindanao remain that of ensuring that any IDP returns planning is managed according to humanitarian principles. With this, particular focus has to be placed on: • Regular dissemination of humanitarian updates; • Regular sharing of information through the Information Management (IM) system which OCHA leads, supported by the members of the Mindanao Humanitarian Team; • Regular dissemination of Who, What, Where, When (4W) information, both vertically and horizontally. This means that information is shared not only among agencies working or based in Mindanao and other stakeholders including agency head offices, government agencies at the national level and the donor community but also with the IDP community themselves; and • Strengthening of IM and tracking of IDP numbers and locations. There remain gaps in shelter assistance in existing Evacuation Centers and relocation, transitional and return areas in Maguindanao province. There is a need to provide shelter support to the displaced families currently staying in Evacuation Centers, transitional sites and communities of return. The Cluster has determined shelter augmentation as being preferable to the construction of new homes. There is a situation of generalised poverty in areas where IDPs are located. If shelter is provided only to IDPs and returnees this would likely cause animosity with those that are also poor and in need of shelter assistance but whom have not been displaced. Shelter augmentation through the provision of shelter materials which beneficiaries use to improve their shelters has been determined to be an appropriate intervention. This will, however, require compliance to design standards yet to be defined. Standards will also encompass land allocation and registration, site planning and management, in conjunction with the LGUs. Inter-relations with other clusters CCCM or IDP site management necessitates the management of information on the situation, needs and gaps of IDPs primarily for camps or camp-like situations. In the case of Mindanao, IDPs whether located in Evacuation Centers, relocation sites, resettlement sites or return sites all live in conditions that are comparable to camp conditions. The information that the CCCM Cluster provides through its SFAs and information management systems is valuable and is needed by the other clusters that respond to specific concerns, such as WASH and health.

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Risks The possible escalation of rido and the possible breakdown of the peace process remain the major risks faced by humanitarian agencies and government departments. Armed conflict has been the major cause of displacement. In addition, the rainy season often causes flooding in large parts of Maguindanao, North Cotabato and Sultan Kudarat provinces. Flash floods and landslides also occur in the provinces of Lanao del Sur and Lanao del Norte. Lastly, IDPs that have returned to their places of origin are ill prepared for a possible escalation of violence associated with rido or a breakdown of the peace process. LGUs have limited capacity and resources to respond effectively and provide assistance should the situation require. Monitoring plan The Cluster will meet monthly, or as required, to review progress against the Cluster Response Plan, share information on activities and cross-cutting issues and analyse funding issues. Cluster members will be expected to report on implementation and progress against projects and agreed indicators. The Cluster will also develop templates and systems to support reporting including monthly, quarterly, and semi-annual reports, evaluations and impact assessments. Gender-sensitive, specific, measurable, achievable, relevant, time-bound (SMART) indicators are included to support monitoring the impact of the cluster activities. Technical Working Groups will be established within the cluster on an ad hoc basis to undertake discrete pieces of work, for example on standards and methodologies.

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Summary table Strategic Objective 1: To support the Government to address the humanitarian needs of affected populations in a timely manner. Linked cluster objectives Indicators Target Monitoring method and frequency To collect, track, analyse and disseminate The availability of accurate data concerning Population statistics updated • Reports to CCCM Cluster meetings information concerning IDPs and returnees for IDP and returnee numbers and locations monthly for 200 IDP and return • Displacement inputs to Mindanao the use of the humanitarian community and sites across 6 conflict-affected Humanitarian Situation Report other stakeholders. provinces The availability of analytical reports of A report every 2 months • Publications of analytical report of displacement trends displacement trends The availability of accurate and updated 200 site windows, each updated • Dissemination of site windows by email and ‘site windows’ every 2 months website Humanitarian issues referred to appropriate • Referral reports cluster • Minutes of CCCM meetings and other clusters Strategic Objective 2: To establish an enabling environment for the implementation of durable solutions for affected populations. To ensure that displaced families have Number of families provided with 10,000 families • Reports from regular field visits adequate emergency shelter. emergency shelter materials (50% of 100,000 individuals) • Assessment reports • Assistance reports • Distribution lists Stockpiles of emergency shelter materials 10,000 emergency kits in storage • Warehouse inventories Number of sites that complied with Sphere 50% of targeted sites (or 100 • Reports from regular field visits minimum standards for land allocation and sites in all provinces) • Assessment reports settlements • Assistance reports • Distribution lists Strategic Objective 3: To develop the capacities of local Government and communities to respond to emergencies and to manage their early recovery. To support the implementation of relevant Number of DRRM councils organised 200 IDP and return sites across • Reports from regular field visits policies and establishment of protection conflict-affected provinces • Reports and minutes from the DRRM mechanisms relating to site management of councils displaced populations. Humanitarian agencies, government Total of 115 participants are • Attendance records of orientation sessions bodies, site committees and community oriented (Maguindanao:30 pax; leaders are oriented on relevant policies Sultan Kudarat and South and protection mechanisms Cotabato: 30; North Cotabato: 25; Lanao del Sur and Norte: 30pax)

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Strategic Objective 4: To establish structures and mechanisms to ensure the protection of vulnerable individuals and groups. To ensure that site management mechanisms Site committees organised and functional 200 IDP and return sites across • Reports from training sessions are established. conflict-affected provinces • Minutes of site committee meetings

• Coordination reports from CCCM members To ensure agreed shelter standards (size, material, cost and methodology) are adopted who visit the sites amongst the shelter actors to ensure equity of • Inventory and dissemination of Site response. Management Committee contact list Site Focal Agencies designated for IDP and 200 IDP and return sites across • Inventory of site committees return locations conflict-affected provinces Standard protocol for opening and closing Approved and ratified standard • Site management committee reports of ECs is agreed and in effect procedures for proper opening • Reports from local government agencies, and closing of ECs DSWD • Reports from humanitarian agencies

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7.2 Early Recovery Early Recovery Cluster Response Plan: summary Government Lead Agency(s) Technical Management Group (TMG) of the Technical Management Staff (TMS) Cluster Lead Agency(s) UNDP Implementing Agencies OCD, UNICEF ILO, FAO, IOM, UNHCR, WFP,OXFAM-GB, MTB, Save the Children, MYROI, CEMILARD, DevCon Number of Projects Two Cluster Objectives 1. To ensure the integration and mainstreaming of early recovery aspects in interventions of all Clusters; 2. To promote sustainable non-agricultural livelihood, basic infrastructure and environmental initiatives in IDP sites and return areas; 3. To support early recovery and reintegration initiatives by the affected communities themselves; and 4. To strengthen the capacities of local government, local leaders and other stakeholders for effective emergency response and management of early recovery and provide a solid foundation for peace building. Total Number of Beneficiaries 50,000 families Funds Requested $1,075,950 Funds requested per priority level Returnees: A-Immediate $868,750 Returnees: B-High $207,200 Contact Information Winston Aylmer Camarinas ([email protected]) Needs analysis Two years after the 2008 armed conflict between the Government forces and the MILF, most of the displaced families have now returned to their places of origin. The problems encountered by the returning population have built over years of recurrent displacement, caused by decades of armed conflict between the Government forces and the insurgent movements in central and southern regions of Mindanao. While there is a peace process ongoing between the Government and the MILF, people continue to feel insecure and fear another armed confrontation between the two groups. The return of the IDPs brings new challenges in respect of their early recovery. For the Early Recovery Cluster, the priority needs of the returning IDPs centre around the following major concerns: • An absence of livelihood opportunities and resources; • The lack of essential infrastructure; and • The capacity of the local Government to coordinate early recovery initiatives. The spontaneous return of IDPs to their places of origin triggered the need for humanitarian agencies to determine how to meet the basic needs of the returnees after almost two years of absence. Basic infrastructure in the return areas has been damaged or destroyed by the conflict or has degraded over the past two years and requires rehabilitation or in some cases complete replacement. While health centres and educational facilities are addressed elsewhere in this HAP, other infrastructure such as access roads and farm to market roads are in need of major repairs. The existence of functional government institutions, at least to the municipal level, is crucial. Local government, with the support of humanitarian agencies and development partners, should be able to ensure the recovery of the returning population. In response to the needs of the returning IDPs to rebuild their lives, the ARMM Regional Government developed the ARMM Early Recovery Plan detailing the support that it strives to provide to the return areas. This Plan also provides the framework upon which early recovery interventions would be anchored to. The Regional Government has already taken steps to lead the coordination and implementation of early recovery interventions in the return sites and as such, has encouraged all stakeholders to put ample considerations to the ARMM Early Recovery Plan. The Early Recovery Cluster Response Plan, with its corresponding initiatives for early recovery, is likewise anchored to the ARMM Early Recovery Plan. It directly subscribes to the needs and targets identified in the Plan and will support its implementation. It is through the ARMM Early Recovery Plan that the HAP early recovery elements and initiatives will complement with other interventions such as the new PAMANA programme of the national government, the ARMM Social Fund and other similar initiatives.

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Review of progress to date The Early Recovery Cluster for ARMM was officially formed in June 2010, taking over from an Early Recovery Forum that preceded it. In the absence of the Office of Civil Defense in ARMM, the Technical Management Group (TMG) of the Office of the Regional Governor took the lead, supported by UNDP. In March 2010, DSWD-ARMM and DSWD Maguindanao, supported by GRP-UN ACT for Peace, conducted a survey of IDPs in Maguindanao and their intentions vis-à-vis return. From this survey, the numbers of remaining IDPs and the locations to which they planned to return were derived. The ARMM Government decided to focus on 46 barangays to which most remaining IDPs were planning to return, of which ten were of highest priority. Over June and July, the ARMM Government, with the support of GRP-UN ACT for Peace and UNDP, and consulting through the cluster system, developed an Early Recovery Plan, which it submitted in August to the national government, seeking funding. The Early Recovery Cluster Response Plan within the HAP intends to support that of the ARMM Government. As of November 2010, the site- specific assessment overseen by UNDP is underway and due to report in December. Since January 2010 the focus of humanitarian programmes has gradually transitioned from predominantly supporting IDPs in Evacuation Centers to supporting return and early recovery. The Early Recovery Cluster aims to ensure that other Clusters support to the maximum extent early recovery principles, ensuring that inputs become assets for longer-term development. Cluster objectives The Early Recovery Cluster has determined four objectives as outlined in the summary window on page 44. The Cluster’s objectives are aimed towards supporting the ARMM Early Recovery Plan as it tries to respond to the challenges brought about by the spontaneous return of the IDPs to their places of origin. Objective 1: To ensure the integration and mainstreaming of early recovery aspects in interventions of all clusters The first objective of integrating early recovery in the interventions of all clusters speaks of the concern towards mainstreaming early recovery in all initiatives in order to lay the ground to establish the foundations of longer-term recovery particularly at the return sites. With almost all IDPs already back at their places of origin, there is a need for all stakeholders to integrate aspects of early recovery in all interventions in order to successfully shift the ‘mindset’ towards early recovery, thus planting the seeds for a more durable and sustainable recovery and development processes. Towards the achievement of this objective, the Cluster will review and strengthen its ToR and discuss it with all relevant stakeholders, foremost among them are the ARMM Government and the different Cluster Leads. Objective 2: To promote sustainable non-agricultural livelihood, basic infrastructure and environmental initiatives in IDP sites and return areas The second objective aims at providing the necessary support to restore life back to the IDPs in areas of return. Towards this end, the cluster will promote and provide assistance which would help returning IDPs regain their dignity through the restoration of basic infrastructures that would support the provision of social services and the provision of start up activities that can help former IDPs re- establish their livelihood. Objective 3: To support early recovery and reintegration initiatives by the affected communities themselves The third objective is aimed at supporting spontaneous recovery initiatives by affected communities. The Cluster recognizes that the returning communities have developed effective coping and recovery mechanisms over the years of recurring displacement. The Cluster Response Plan likewise gives recognition to the capacity of the people to plan and implement recovery initiatives given their particular situation. Thus, this objective aims to support early recovery and integration initiatives of the communities and would strive to build their capacity to further manage the recovery processes.

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Objective 4: To strengthen the capacities of local government, local leaders and other stakeholders for effective emergency response and management of early recovery and provide a solid foundation for peace-building Given the recurring conflict and displacement in this part of the country, the cluster is looking towards further strengthening the capacities of all relevant stakeholders towards better emergency response and management of early recovery. The national government has just passed the Implementing Rules and Regulations of the Republic Act 10121 (Disaster Risk Reduction and Management Law) which provides the guidance on the formation of the bodies that would look into the preparation and management of emergency and early recovery response at all levels of the government. This new law will serve as the anchor of the Early Recovery Cluster in supporting the efforts to further strengthen the capacities of the local government units and other stakeholders in disaster preparedness and early recovery. Further to strengthening capacities, the early recovery response in this HAP added a peacebuilding component in recognition of the nature of displacement in Mindanao. Part of the general aims of early recovery is not just to bring affected communities back to their situation prior to displacement but to make their condition even better by changing the risk and conflict dynamics of the situation which led to their displacement. In this case, provisions towards establishing a more solid foundation for peacebuilding will necessarily reduce the risk of yet another displacement for the affected communities and would impact, however small, to the conflict dynamics in Mindanao. Given the magnitude of the needs and the considerable geographical area of concern, the ARMM Government has made a deliberate decision to focus the initial Early Recovery interventions on 46 priority return sites in the province of the Maguindanao. Furthermore, the Early Recovery Cluster intends to limit its initiatives to supporting non-agricultural livelihoods, construction or rehabilitation of essential infrastructure, improving entrepreneurial skills and the formation or strengthening of coordination mechanisms at the local level. The Early Recovery Cluster identified the following activities that it plans to undertake in pursuit of the objectives outlined above. Output Indicator Target ER Cluster ToR ER Cluster ToR for ARMM finalised by end of August Number of support, projects and initiatives that At least 150 communities support or lead to longer-term recovery and (return/relocation/resettlement) supported within the development six provinces Number of families provided with livelihood support At least 30 families in each of the 150 communities are provided with livelihood support

Number and types of basic infrastructure projects At least 5 community access roads / farm-to-market supported road projects were supported and barangay health centres in the 46 return sites are constructed/repaired and functional Number and types of environmental initiatives At least 1 environment-related initiative is supported implemented per return site Number of entrepreneurial skills trainings and At least 1 entrepreneurial skills development activity is initiatives in IDP sites and return areas conducted per return site Number of site-specific ER plans At least 46 return sites in Maguindanao have formulated their respective ER plans Number of plans and initiatives supported At least 150 communities (return/relocation/resettlement) supported within the six provinces are supported with Early Recovery initiatives Number of communities with demonstrated capacities All identified return sites have functional bodies which to respond to emergencies and manage recovery would lead in disaster preparedness and response Number of DRRM councils operational/functional in At least 46 community disaster preparedness and resettlement and return sites management plans have been formulated The Early Recovery Cluster Response Plan focusses on 46 barangays in 11 municipalities within Maguindanao Province, identified as priority barangays for support by the ARMM Government.

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Inter-relations with other clusters Given the critical importance of mainstreaming early recovery throughout the HAP, the Early Recovery Cluster will be coordinating closely with all other clusters. The work of the Early Recovery Cluster in supporting non-agricultural livelihoods and establishing essential infrastructure will be closely linked with that of other clusters. In the case of health infrastructure, the Early Recovery Cluster will coordinate closely with the Health Cluster to make sure that the subsequent health infrastructures that will be provided in the return areas will be in accordance with the prescribed standards and will have the necessary corresponding implements to delivery sustainable health services to the population. The Early Recovery Cluster will work with the Education Cluster to make sure that any education related infrastructure will have the necessary components for the sustainable delivery of educational services at the return communities. In both of the above cases, the Early Recovery Cluster will focus on the provision of physical infrastructure components while the other Clusters will focus on the ‘software’. With regard to livelihoods, the Early Recovery Cluster has agreed with the Food Security and Agriculture Clusters that support to livelihoods based on agriculture will be addressed by the latter, while the support to livelihood not based on agriculture will be covered by the Early Recovery Cluster. Risks The major risk that might hamper the implementation of the early recovery activities at return locations is that the peace and security situation might deteriorate, either from a breakdown in the peace process or from escalating cases of rido. The Early Recovery Cluster Response Plan is anchored on the return of the displaced communities to their places of origin. A breakdown or setback in the current peace process would lead to people being displaced again to the Evacuation Centers and damage early recovery initiatives. Likewise, localised clan conflicts known as ‘ridos’ could potentially derail the efforts of the communities and other stakeholders in the pursuit of early recovery and development. Monitoring plan The outputs and the subsequent outcomes of the Early Recovery Cluster response will be monitored and evaluated at three levels: The first level will be done through the monitoring mechanisms and structures of the respective LGUs. It should be noted that the LGUs (at least at the provincial and municipal levels) are functional in the identified return sites and, in parallel with the implementation of the Early Recovery Plan, is the strengthening of the appropriate institutions that will coordinate the interventions on the ground, including a monitoring function. The second level of monitoring will be done through reports that will be submitted to the regional DRRM council by the respective line agencies of the government. These agencies also lead the inter- agency clusters and as such, have access to information not just of their department’s interventions but of those of other partners. The third level of monitoring will be done by the regular monitoring body within the regional government’s Planning and Development Office, which has the mandate and the resources to monitor interventions within the region. For the purpose of the Early Recovery Cluster Response Plan, the monitoring unit of the Regional Planning and Development Office will be expanded to include the Technical Management Group and selected Cluster members, including UNDP. It is also at this third level that the progress made towards desired outcomes and, where possible, towards the impact of the interventions will be ascertained. UNDP and partners will participate in all levels of monitoring through their membership in monitoring committees, which will be established at each level.

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Summary table Strategic Objective 2: To establish an enabling environment for the implementation of durable solutions for affected populations. Linked Cluster objectives Indicators Target Monitoring method and frequency To ensure the integration and ER Cluster ToR ER Cluster ToR for ARMM finalised by end of • Monthly Cluster reporting mainstreaming of early recovery August 2010 • Ad-hoc agency reporting aspects in interventions of all Number of projects and initiatives that At least 150 communities • RDRRMC reports Clusters. support or lead to longer-term recovery (return/relocation/resettlement) supported and development within the six provinces • Joint RDRRMC-TMG-Cluster committee report • Local monitoring mechanisms / structures (LGU) To promote sustainable non- Number of families provided with At least 30 families in each of the 150 • Monthly Cluster reporting agricultural livelihoods, essential livelihood support communities are provided with livelihood • Ad-hoc agency reporting infrastructure and environmental support • RDRRMC reports initiatives in IDP sites and return Number and types of basic infrastructure At least 5 community access roads / farm-to- areas. projects supported market road projects are supported and • Joint RDRRMC-TMG-Cluster committee barangay health centres in the 46 priority report return sites are functional • Local monitoring mechanisms / structures Number and types of environmental At least 1 environment-related initiative is (LGU) initiatives supported implemented per return site Number of entrepreneurial skills training At least 1 entrepreneurial skills development courses and initiatives in IDP sites and activity is conducted per return site return areas Strategic Objective 3: To develop the capacities of local Government and communities to respond to emergencies and manage their early recovery. To support early recovery and Number of site-specific ER plans At least 46 return sites in Maguindanao have • Monthly Cluster reporting reintegration initiatives by the formulated their respective ER plan • Ad hoc agency reporting affected communities themselves. Number of plans and initiatives At least 150 communities • RDRRMC reports supported (return/relocation/resettlement) supported within the six provinces are supported with • Joint RDRRMC-TMG-Cluster committee early recovery initiatives report To strengthen the capacities of local Number of communities with All identified return sites have functional • Local Monitoring Mechanism/structures government, local leaders and other demonstrated capacities to respond to bodies which could lead disaster preparedness (LGU) stakeholders for effective emergencies and manage early recovery and response. emergency response and At least 46 community disaster preparedness management of early recovery and and management plans have been formulated. provide a solid foundation for peace Number of DRRM councils operational in DRMM councils operating in at least 60 building resettlement and return sites municipalities.

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7.3 Education Education Cluster Response Plan: summary Government Lead Agency(s) Department of Education (DepEd) Cluster Lead Agency(s) UNICEF Implementing Agencies UNICEF, CFSI, Save the Children, CEMILARDEF, KFI, MTB, MYROi Number of Projects One Cluster Objectives 1. To increase the access of internally displaced children to educational services; 2. To support the provision of services with other Clusters that increase access to and quality of education for affected children; 3. To enhance the capacity of teachers, day-care workers and volunteers on Education in Emergencies standards; 4. To increase the knowledge and acceptance of education services on the part of affected communities (of origin in 38 municipalities of Maguindanao, North Cotabato, Lanao del Sur and Lanao del Norte); and 5. To support EiE policies and standards, to include mainstreaming, accreditation and promotion of children attending alternative modes of education. Total Number of Beneficiaries Total: 42,000 children (including 21,420 girls) IDPs and returnees of 3-5 years old: 9,800; 6-11 years old: 21,000; 12-15 years old: 11,200 Funds Requested $2,828,150 Funds requested per priority level IDP/Host Communities: B-High $2,828,150 Contact Information Ma. Lourdes De Vera ([email protected]) Needs analysis While the education of all children in areas affected by armed conflict has been adversely impacted, that of displaced children has been particularly disrupted, especially as the 2008 displacements have been longer lasting than previous conflicts. Assessments conducted by Save the Children (May 2010) and CFSI (June 2010) and data from the Department of Education - ARMM concerning conflict- affected children (June 2010), found that around 70,000 children were affected in the area covered by this HAP. Prolonged displacement, destruction of and damage to school facilities, the distance of schools from Evacuation Centers, loss of vital documents and hidden education costs have caused many displaced children to drop out of schooling. The Provincial Planning and Development Office of Maguindanao Province estimated that the schooling of 18,000 children had been interrupted because of their displacement between 2008 and August 2009.21 The Department of Education - ARMM estimated in October 2009 that 4,000 IDP children were at risk of dropping out of education. School authorities have made efforts to help displaced children pursue their education by allowing them to use classrooms in the afternoon while local children used them in the morning. However, many displaced parents have been unable to afford school supplies or the children have to work to complement the family income. Following various assessments and reports from Education Cluster members, needs and gaps were identified. IDP children have poor access to basic education for the following reasons: • The conflict of August 2008 had damaged many education facilities (schools and day-care centres) and caused the loss and destruction of learning materials, rendering these facilities non-functional; • A continuing volatile security situation has forced IDP families to move frequently to safer places, pulling their children out of schools; • Overcrowded classrooms and overloaded subject assignments of teachers in schools hosting IDP children is adversely affecting the quality of learning; • Malnutrition and poor health conditions of displaced children adversely affects their physical, social, and mental well-being and hampers their full participation in educational activities; and • Lack of livelihoods in Evacuation Centers compels children either to engage in menial work to help eke a living for their families, or to look after younger siblings when their parents are out working, instead of going to school.

21 Philippine Information Agency, 26 August 2009

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There is a lack of a legal framework and policies for Education in Emergencies (EiE) at national and regional levels. This has contributed to a situation whereby there is a lack of appropriate educational materials, including Alternative Delivery Learning Mode modules, and a lack of technical expertise on EiE within the Department of Education. Few teachers are trained on delivery EiE. Moreover, there are no guidelines on bringing conflict-affected pupils back into the mainstream of education. Education received informally or as part of an EiE curriculum lacks accreditation and is not recognised by the education system of the Philippines. This has a long term detrimental effect on IDPs, reducing their ability to receive an education and lift themselves out of poverty as adults. Certain Municipal Local Government Units (MLGUs) have had limited engagement with IDP children. In some cases, this concerns a lack of awareness of EiE principals and practices. MLGUs were neither budgeted nor sufficiently prepared to provide EiE, and lacked the facilities (learning materials, furniture and WASH facilities) required to provide education during emergencies. While there has been resumption of classes in many places of return, there are still children who remain in the Evacuation Centers and are not able to access basic education services. Likewise, even in places of return, there are children who are unable to continue schooling due to damaged classrooms, facilities, other instructional materials and more importantly, absence of teachers. Many teachers are afraid to go back to the schools where they used to teach for fear of insecurity. Additionally, there are many families who opted to resettle in other villages but their children can no longer be accommodated by existing education service providers in the resettlement area due to overcrowded classroom size and overloaded teachers. The table below indicates the affected population and the target beneficiaries.

Affected population (children)* Beneficiaries Location Female Male Total Female Male Total Maguindanao 13,923 13,377 27,300 8,354 8,026 16,380

North Cotabato 3,927 3,773 7,700 2,356 2,264 4,620

South Cotabato

Sultan Kudarat 3,927 3,773 7,700 2,356 2,264 4,620

Lanao del Sur 6,426 6,174 12,600 3,856 3,704 7,560

Lanao del Norte 7,497 7,203 14,700 4,498 4,322 8,820 Total 35,700 34,300 70,000 21,420 20,580 42,000

*Based on assessments conducted by Save the Children (May 2010), CFSI (June 2010), and data from the DepEd ARMM (June 2010). Review of progress to date To date, UNICEF, Save the Children, CFSI, Department of Education - ARMM and other Education Cluster members have responded to the needs of children specifically in the areas of early childhood care and basic education. To date, they have: • 5,601 children aged 3-15 were able to access basic education and psycho-social sessions even in times of emergencies; • 62 temporary learning spaces (TLSs) and child-friendly spaces (CFSs) were constructed and repaired; • 217 teachers/volunteers were trained in psycho-social and education in emergency and provided with teachers packs; • 5,601 children were provided with learning kits and student packs; and • 2,976 chairs, 62 blackboards and 496 tables were provided in 62 temporary learning spaces. Cluster objectives The Cluster aims to ensure that a targeted 60% (42,000) of 70,000 IDP children and youth gain access to basic education. The Cluster will support the Government in developing a new policy on EiE. The Cluster will orient 33 MLGUs across four provinces on EiE and assist each in developing specific EiE plans.

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Objective 1: Increase access of internally displaced children to basic education services To help bring back normality to the lives of the IDP children, the Education Cluster Response Plan proposes to provide or restore their learning environment that is responsive, safe and healthy. Provisions will include the repair of damaged early learning centres and classrooms in the most affected sites or, where appropriate, the setting-up of Temporary Learning Centres (TLCs). The TLCs for the 3-5 year olds will be provided with Early Childhood Care and Development (ECCD) packages to include educational toys and recreational materials and play-based learning sessions will be conducted. The school-aged (normally 6-15 year olds) IDP children and their teachers will be provided with basic school supplies and learning packages to include story books and activity-centred, self-learning instructional materials. The learning sessions especially in the TLCs for the 6-15 year olds will integrate psycho-social interventions to facilitate the healing process among affected children. Objective 2: To support the provision of services with other Clusters that increase access to and quality of education for affected children; The needs of IDP children are interconnected and will need an integrated holistic approach. In this regard, the Plan proposes key inter-cluster or inter-sectoral collaboration through discussions with other clusters or sectors on an ongoing basis, which is elaborated below in the section on ‘Inter- relations with other Clusters’ (section 0Error! Reference source not found.). Objective 3: To enhance the capacity of teachers, day-care workers and volunteers on Education in Emergencies standards; To equip the day care workers, teachers and volunteers with adequate skills, the Education Cluster Response Plan proposes to organize orientation on EiE standards and training on the application of these standards for them. The capacity building programme will include orientation on the use of self- learning instructional materials as well as integration of psycho-social interventions and promotion of nutrition, sanitation and hygiene practices. Objective 4: To increase the knowledge and acceptance of education services on the part of affected communities There is a need to actively engage the parents and community members in restoring educational services to the IDP children and to help build the communities’ resilience to and preparedness for disasters. Towards this end, the plan will include orientation sessions on EiE and disaster risk reduction for the members of the Parent Teacher Community Associations (PTCAs), Local School Boards (LSBs) and other community leaders in the assisted TLCs and schools. Support will also be given to parent- or community-led initiatives to help improve or complement school improvement activities. These may include school-community gardening to complement the emergency supplementary feeding program or school feeding program of the government. Objective 5: Support Education in Emergencies policies and standards, to include mainstreaming, accreditation and promotion of children attending alternative modes of education To address policy and programming gaps in emergency response and preparedness, especially in areas vulnerable to complex emergencies, the plan will support the refinement of the education policy framework to enhance EiE and disaster risk reduction in educational planning, policy formulation and programming. The plan will support the conduct of advocacy and consultation meetings with education stakeholders at the different levels to promote EiE as well as to mitigate risks to prevent schools from being attacked. Activities The Education Cluster intends to undertake the following activities in pursuit of its objectives. Output Indicator Target Number of schools, day-care centres, and TLCs 75% or 409 of the 546 target affected schools, day-care centres provided with support and TLS Number of children’s learning packs distributed 21,000 children’s learning packs (30% of 70,000 affected for grades 1-6 children who are age 6-11) Number of Teacher’s Packs distributed 716 teachers’ packs (for both elementary and secondary students of 32,200 at 1 teacher:45 students) Number of library sets distributed 716 library sets Number of TLS constructed 50 TLS Number of para-teachers and volunteers 100 para-teachers and volunteers deployed Number of teaching personnel and volunteers 327 day-care worker volunteers (9,800 children aged 3-5 with

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Output Indicator Target trained in standards and frameworks (INEE, 1:35 DCW children ratio) psycho-social approaches, EiE, DRR) 100 para-teachers 716 regular teachers Number of teaching personnel and volunteers 1,143 teachers, day care workers and volunteers trained on EiE and ADLM Number of EiE Preparedness plans formulated 33 EiE plans (1 in each participating municipality) Number of PTCAs, LSBs and other education 119 PTCAs, 33 LSBs (numbers are based on Assessments of stakeholders trained DepEd, Save the children and CFSI) Number of communities with community leaders 80% or 95 of the total affected communities/schools actively supporting education for displaced children Number of communities for which their 60% or 72 of affected communities commitment to education is enshrined in the leaders’ pledge, a barangay resolution and/or a MoA Number of key DepEd officials and other 1 DepEd-ARMM Secretary, 5 Division Superintendents, at least education leaders (from NGOs) consulted on 33 District Supervisors, 119 Principals plus other education EiE Policy stakeholders Number of workshops conducted 9 policy workshops An EiE policy developed for ARMM with related An EiE policy for ARMM Implementing Rules and Regulations rules for its implementation Number PTCAs and parent groups trained and 89 affected schools and 50 TLS supported with vegetable gardening programme as a complement to an emergency supplementary feeding programme Number of children benefitting from de-worming 80% (or 16,800) of target number of children in schools aged 6- in participating schools and TLS 11 Number of children in schools, day-care centres 90% (or 37,800) of the total target of children in schools, day- and TLS provided with nutrition promotion care centres and TLS sessions Number of ECCD teachers engaged 327 day-care workers in affected communities Number of ECCD packs distributed 327 ECCD packs Number of ECCD children’s bags distributed 9,800 bags Number of teachers, day-care workers and 1,143 teachers, day-care workers and volunteers trained volunteers trained on the use of the reviewed alternative delivery mode modules Although the Education Cluster is submitting one project, with oversight by UNICEF, Cluster members will enter an agreement with UNICEF as implementing partners to work in particular locations, as set out in the table below.

Municipality Organizations Maguindanao CFSI, KFI, CEMILARDEF, Save the Children, MTB, ( Odin Sinsuat, Datu Angal Midtimbang, MYRO , , Datu Saudi Ampatuan, , , Ampatuan, , , Talitay, Datu Piang, , , ) North Cotabato Save the Children (Pigcawayan, Aleosan,Pikit, Midsayap, Tulunan) MTB Sultan Kudarat KFI (Lambayong, Bagumbayan, Palimbang, ) Lanao Del Norte CFSI (Munai, Tangkal, Tagoloan, Poona, , Save the Children Kolambugan, Maigo, , Kauswagan) Lanao del Sur CFSI (Piagapo, , Marawi City, Taraka, Kalunagas, Save the Children Wato , Bayabao, ) Inter-relations with other Clusters To date, several areas of cooperation and coordination between the Education Cluster and relevant clusters have been identified: • Collaborate with the Health Cluster to provide de-worming services for children in participating schools and TLCs;

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• Organize nutrition promotion sessions in schools, day-care centres and TLCs with the Nutrition Cluster. Furthermore, the Education and Nutrition Clusters will cooperate to support children suffering from SAM and Moderate Acute Malnutrition (MAM); • Ensure that schools, day-care centres and TLS have adequate WASH facilities in collaboration with the WASH Cluster; • Promote vegetable gardening for sustainability purposes or as an alternative to the emergency supplementary feeding programmes in schools, TLCs and CFSs with the Food Security, Agriculture and Nutrition Clusters; • Liaison with the Food Security and Agriculture Cluster in relation to the WFP school-feeding programme, which is to target 80,000 children over three districts in 300 schools; and • Strengthen the integration of psycho-social care and support as part of the learning activities in the TLCs and affected schools with the Child Protection Network. Risks The major risks and assumptions that may affect the implementation of this Plan include: Security restrictions on the access of Education Cluster members, specifically humanitarian agencies, to project areas. If armed confrontation were to break out between MILF and government armed forces, it is likely that the movements of humanitarian agencies, especially the UN, would be restricted, this reducing the Cluster’s abilities to meet its objectives. Changes in government policy and legislation might impact the Cluster Response Plan, especially with regards to the development of EiE policies. Changes in appointed and elected government officials, particularly at the level of the MLGU, would require establishing a new relationship, building an appreciation of the initiatives underway, and may set back work in strengthening their capacities to deliver EiE. To mitigate the risks set out above, the Cluster will aim to: (i) stockpile teaching materials; (ii) establish a roster of trained volunteers (for TLS) who can be deployed quickly; (iii) track children and students that are vulnerable or in greater risk of being displaced; (iv) identify and train additional volunteers; (v) train teachers on disaster risk reduction and EiE; and, (vi) with due consideration to any local sensitivities, the Cluster will conduct a joint risk assessment and conflict mapping exercise in the municipalities where it operates. Monitoring plan The Education Cluster will use the following monitoring tools and mechanisms to track indicators of outputs, outcomes, and impact of project activities: Activity Evaluation: This tool is administered immediately after a particular activity has been completed so as to solicit feedback and determine the effect on participants. It is usually done in writing but could also be done through verbal discussions with participants. Mid-Year Project Review and Assessment: The Project Team shall conduct a mid-year assessment of the project to keep track of its progress, identified gaps and issues and identified areas for improvement. Joint Monitoring Field Visits: Education Cluster members shall conduct joint visits to project sites to assess progress of activities and identify gaps for collective action. This shall be done on at least a quarterly basis. Results of these visits shall form part of the project reports. Project End Evaluation: This is conducted to determine the overall impact of the project to target beneficiaries and communities and to identify lessons learned and success stories. Regular representatives of Cluster members shall participate in this three day evaluation. Monthly Cluster reporting: The Education Cluster meets every month in Cotabato City and discusses needs and gaps, forthcoming activities and progress. Minutes are produced and disseminated. Furthermore, policy development work will generate documentation, attendance records will be kept of all workshops and training courses held. .

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Summary table Strategic Objective 1: To support the Government to address the humanitarian needs of affected populations in a timely manner. Linked Cluster objectives Indicators Target Monitoring method and frequency To increase the access of internally Number of schools, day-care centres, and 75% (409) of the 546 target affected schools, day- Lists of facilities supported displaced children to educational temporary learning centres supported care centres and TLS services. Number of children’s learning packs distributed for 21,000 children’s learning packs (30% of 70,000 Distribution lists grades 1-6 affected children aged 6-11) Number of teacher’s packs distributed 716 Teachers’ Packs (for for both elementary and Distribution lists secondary students 32,200 at a ratio of 1 teacher:45 students) Number of library sets distributed 716 library sets Distribution lists Number of TLS constructed 50 TLS Field visit reports Number of classrooms repaired 193 slightly damaged Field visit reports 54 partially damaged 12 totally damaged (to include WASH facilities) Number of pupils chairs, tables and chalkboards 32,117 chairs List of facilities provided with provided 485 tables equipment 485 chalk boards (data based on DepEd-ARMM assessment as of June 2010) Number of para-teachers and volunteers deployed 100 para-teachers and volunteers Lists of para-teachers deployed Number of ECCD workers supported 327 day-care workers in affected communities Number of ECCD packs distributed 327 ECCD packs Number of ECCD children’s bags distributed 9,800 bags To support the provision of services Number of affected children participating in a 60% or 25,200 of the total target of affected Monthly Cluster reporting with other Clusters that increase school feeding programme children and youth Evaluation activities access to and quality of education for Number PTCAs and parent groups trained and 89 affected schools and 50 TLS Training attendance records affected children. supported with vegetable gardening programme Distribution reports as a complement to an emergency supplementary feeding programme Number of children benefitting from de-worming in 80% or 16,800 of target number of children in participating schools and TLS schools aged 6-11 Number of children in schools, day-care centres 90% (or 37,800) of the total target of children in Training attendance records and TLS provided with nutrition promotion schools, DCCs and TLS sessions Number of schools, day-care centres and TLS Wash facilities installed in 75% (or 409) of affected provided with WASH facilities schools, day-care centres and TLS

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Strategic Objective 3: To develop the capacities of local Government and communities to respond to emergencies and to manage their early recovery. To enhance the capacity of teachers, Number of teaching personnel, day-care centre 327 day-care worker volunteers (9,800 children Monthly Cluster reporting day-care workers and volunteers on workers and volunteers trained in standards and aged 3-5 with 1:35 DCW children ratio) Activity Evaluation Education in Emergencies standards. frameworks (INEE, psycho-social approaches, 100 para-teachers EiE, DRR) 716 regular teachers Number of teaching personnel and volunteers 1143 teachers, day care workers and volunteers Monthly Cluster reporting trained on EiE and ADLM Evaluation activities Number of Distance Learning Modules developed 6 modules (grades 1-6) Monthly Cluster reporting 1 module for high school (open high school Evaluation activities scheme) To increase the knowledge and Number of EiE Preparedness Plans formulated 33 EiE Preparedness Plans (1 in each participating EiE planning documents acceptance of education services on municipality) the part of affected communities. Number of PTCAs, Local School Boards and 119 PTCAs, 33 LSBs (numbers are based on Monthly Cluster reporting other education stakeholders trained Assessments of DepEd, Save the Children and Evaluation activities CFSI) Number of communities with community leaders 80% or 95 of the total affected Monthly Cluster reporting that attend in meetings and participate in communities/schools Evaluation activities education activities for displaced children Number of communities for which their 60% (72) of affected communities commitment to education is enshrined in the leaders’ pledge, a barangay resolution and/or an MoA Strategic Objective 4: To establish structures and mechanisms to ensure the protection of vulnerable individuals and groups. To support Education in Emergencies Number of key DepEd and other education 1 DepEd-ARMM Secretary, 5 Division Monthly Cluster reporting policies and standards, to include leaders (from NGOs) consulted Superintendents, at least 33 District Supervisors, Evaluation activities mainstreaming, accreditation and 119 Principals plus other education stakeholders Workshop minutes promotion of children attending Number of workshops conducted 9 policy workshops alternative modes of education. An EiE policy developed for ARMM with related An EiE policy for ARMM The EiE policy document rules for its implementation Implementing Rules and Regulations (IRR) The implementation rules Number of Alternative Delivery Learning Mode 4 Alternative Delivery Learning Mode modules modules reviewed and modelled reviewed and modelled

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7.4 Food Security and Agriculture Food Security and Agriculture Cluster Response Plan: summary Government Lead Agency(s) DSWD, DAF-ARMM/DA Cluster Lead Agency(s) WFP, FAO Implementing Agencies CFSI, MTB, KFI, ACF, SEED Technologies Foundation Inc. Number of Projects Two Cluster Objectives 1. To ensure adequate food consumption for targeted beneficiaries. 2. To increase the access of targeted communities to assets in fragile, transition situations. 3. To enhance the skills of targeted communities thus improving their resilience to shocks. 4. To increase the attendance of pregnant and lactating women at health centres. 5. To increase the enrolment of children, including IDPs and returnees, in schools assisted by the Food Security and Agriculture Cluster. 6. To strengthen the public and community based institutions responsible for sector development and service provisions (e.g. extension). 7. To increase food production among resettled and returnee households. Total Number of Beneficiaries 500,000 (including 255,000 women and girls) Funds Requested $11,941,675 Funds requested per priority Returnees: B-High $2,141,675 level Not Specified $9,800,000 Contact Information WFP: Stephen Anderson ([email protected]) / Asaka Nyangara ([email protected]) FAO: Kazuyuki Tsurumi ([email protected]) / Aristeo Portugal ([email protected]), Needs analysis The Emergency Food Security Assessment (EFSA) conducted by WFP in January 2010 indicated approximately 70% of IDP and returnee households were food-insecure. Of this 70%, 40% were considered to be highly or moderately food-insecure. With the loss of their key sources of income, IDPs and returnees have had to borrow to provide food for the family, thus falling further into debt. This is further exacerbated by sharecropping or tenant farming arrangements forcing them to provide a disproportionately high percentage of their harvest to the landowner or to the local miller/trader who financed their farm inputs. The major livelihood activity for the conflict-affected population prior to displacement was crop production. However, to cope with their displacement many IDPs and returnees have been forced to engage in daily labour, trading, fishing, forestry or hunting as their primary livelihood activity. Support to recover their farming livelihood as well as to secure more diversified livelihoods would enhance the resilience of households. Inadequate food consumption is prevalent among IDPs and returnees, including low dietary diversity characterised by a high consumption of carbohydrates and an inadequate intake of proteins, fat and micronutrients. As a result, there are higher rates of malnutrition in Mindanao than in other regions of the Philippines. According to the joint UNICEF-WFP Nutrition and Food Security Assessment in 2009, global acute malnutrition in Mindanao was just under 10%, as compared to the national average of 6.3%. Children 6 to 24 months of age in the region had a significantly higher global acute malnutrition rate of 22%. Similarly, stunting among children under five years, a measure of chronic malnutrition, is also extremely high at 41%. Micronutrient deficiency disorders are common throughout the Philippines and pose a specific threat to the health and nutritional status of children in Mindanao. Data from the 2006 Food and Nutrition Research Institute (FNRI) survey showed prevalence rates of iron deficiency anaemia of over 40% among children under the age of five years and pregnant and lactating women in five provinces of Central Mindanao (Lanao del Sur, Lanao del Norte, Maguindanao, Sultan Kudarat and North Cotabato). IDPs have lost their draught animals (carabao), small livestock, farm tools and fishing gear and are heavily indebted to moneylenders, banks and other credit institutions from loans taken out for crops that were never harvested due to displacement. They are therefore unable either to prepare their land or to purchase the agricultural inputs required to restore their farm and fisheries production. There is insufficient capital for farmers and fishers due to frequent displacements, and a lack of financing institutions offering crop insurance in Mindanao.

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As such, the agriculture-based livelihoods, including the means of food production, have been damaged or deteriorated over time, which has had a significant impact on community and provincial food security in Mindanao. Beneficiaries Numbers of beneficiaries22 to be targeted are detailed in the table below. Beneficiary Group Male Female Total Adults (>18) 83,300 86,700 170,000 Children (5-18) 78,400 81,600 160,000 Children (<5) 83,300 86,700 170,000 Total 245,000 255,000 500,000 Review of progress to date Following the August 2008 conflict which triggered the large scale humanitarian crisis, WFP has assisted over 612,000 beneficiaries who were the neediest and food-insecure with approximately 16,000 metric tons (MT) until July 2009. The main intervention was relief (at the onset of the emergency); life saving support was provided through general food distribution and supplementary feeding. As the security situation started to improve after the SOMO/SOMA a two pronged approach was adopted; assistance to those who remained displaced, while providing early recovery interventions through Food for Work, Food for Training and mother and child health (MCH) programmes to those who were returning to their places of origin; approximately 19,000MT of mixed commodities were distributed between July 2009 and June 2010. Since the Protracted Relief and Recovery Operation commenced in July 2010, WFP has targeted over 250,000 beneficiaries with some 4,500MT of mixed commodities. The interventions consisted mainly of early recovery activities and small scale relief to those who remain displaced in Evacuation Centers. FAO received funding from the CERF, and is implementing a project aimed at improving the food security of 7,250 IDP families (or 43,500 individuals) from 25 return sites/barangays in 11 municipalities of Maguindanao province. It involves the provision of agricultural input packages, including rice, corn and high value commercial crops seeds, fertilisers, garden tools and fishing gears, to help rebuild the livelihoods of IDPs and reduce their dependency on external food aid. Cluster objectives In order to achieve a long term sustainable food security and strengthen agricultural livelihoods, there is an urgent need to assist the different groups of IDPs (staying in Evacuation Centers, resettled in host communities, and returnees) with the replacement of productive assets lost or damaged as a result of the conflict, enabling them to restore their cropping, livestock rearing, fishing and other agriculture-based activities. Furthermore, there is a need to strengthen the institutional set-up to develop the crops, livestock, poultry, fisheries and aquaculture sub-sectors (at community, public and private sector levels), including marketing. WFP and partners have been transitioning away from General Food Distribution to IDPs in camps and towards more targeted interventions. Within this HAP, in pursuit of its first objective, the Food Security Cluster will manage a Vulnerable Group Feeding programme, targeting 10,000 households, who have been identified through the Cluster. Of greater volume will be the Food for Training programme that intends to assist 94,000 participants and the Food for Work programme that will target 46,000 participants. These two programmes will aim to improve the skills of beneficiaries as well as providing assets for the early recovery of benefiting communities. The Food Security Cluster will also support an Emergency School Feeding programme and supplementary feeding in conjunction with the Education and Nutrition Clusters respectively. These activities will complement the ARMM Early Recovery Plan. To enable returning IDPs to recommence farming livelihoods, the Agriculture Cluster will provide agricultural input packages to 17,600 IDP farm families who have already returned to their places of origin. The Cluster will also provide farm implements to 200 sub-groups of four farmers. To support fishing families, the Cluster will distribute appropriate fishing equipment to 660 IDP families resettling in the municipalities bordering freshwater bodies such as the Liguasan Marsh and Lake Lanao.

22 Targeted beneficiaries are calculated as a percentage of overall population in the affected areas.

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Inter-relations with other Clusters Both Food Security and Agriculture Clusters are intrinsically linked with the Early Recovery Cluster. The former clusters will strive to ensure that their inputs become assets for longer-term recovery. The Food Security Cluster works closely with the Department of Education and other Education Cluster members on the implementation of Emergency School Feeding, including complementary inputs such as NFI. Supplementary Feeding is conducted in collaboration with the Nutrition Cluster. In addition, the Food Security Cluster shares information across clusters including the dissemination of assessment results. The Agriculture Cluster works closely with the regional field units of Department of Agriculture and the Department of Agriculture and Fisheries - ARMM. This is to ensure timely sharing of information and updates on the agricultural situation for all partners in the design of their interventions and programming to maximize synergies and avoid duplication. Risks The most likely threats to the interventions of both the Food Security and Agriculture Clusters are: 1. Interruption of provision of support through access limitations due to insecurity or natural disasters such as flooding; 2. Difficulty in accessing remote areas; 3. Pipeline breaks due to lack of funding or other problems; 4. Insufficient capacity of implementing partners. Monitoring plan The Food Security Cluster monitoring system will be based on multi-stakeholder inputs and participation. Data on the distribution and impact of assistance will be gathered through the monitoring checklists and distribution reports. Data from different sources such as implementing partners and government counterparts will be compared and verified on a regular basis. Joint monitoring trips will also be organised with the key government counterparts, where appropriate, to enhance communication and collaboration. The objectives of each project within the clusters will follow the clusters’ overall objectives. Monitoring activities will be carried out by each partner to ensure that it is meeting project objectives as well as contributing to overall cluster objectives. Each project will include indicators (in line with the cluster indicators) and a monitoring plan. FAO, WFP, DAF-ARRM and DA will closely monitor the price of basic agriculture livestock and fisheries products as well as the cost of inputs in order to provide early warning to prevent and mitigate the ill-effects of potential food shortages. FAO and WFP will work together on Food Security Assessments or other Food Security information systems. The Cluster will incorporate a gender perspective for monitoring activities to ensure that baseline, needs and resource assessments include data disaggregated by sex and age, that assessments teams include a balanced male/female ratio and that equal numbers of women and men IDPs/resettled population/host communities are consulted and findings on gender (derived from analysing monitoring data) are used to inform programming. In addition, cluster partners will advocate for key issues, concerns and gaps identified at the local government level to be taken up and addressed at the national level through various coordination mechanisms.

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Summary table Strategic Objective 1: To support the Government by addressing in a timely manner the humanitarian needs of affected populations. Linked Cluster objectives Indicators Target Monitoring method and frequency To ensure adequate food At least 90% beneficiaries achieve a household food consumption 10,000 households to be Monitoring reports consumption for targeted score of 35 and above assisted under the Cooperating partners’ distribution beneficiaries. Vulnerable Group Feeding reports programme Emergency food security assessment reports Number of women and men, boys and girls receiving food and 94,000 participants to be Monitoring reports non-food items, by category and as percentage of planned figures targeted under the Food Cooperating partners’ distribution For Training programme reports 46,000 participants to be Emergency food security assessment targeted under the Food reports For Work programme Tonnage of food distributed, by type, as percentage of planned Monitoring reports distribution Cooperating partners’ distribution reports Emergency food security assessment reports Strategic Objective 2: To establish an enabling environment for the implementation of durable solutions for affected populations. To increase the access of targeted The ‘Community assets score’ (measures the increase in the At least a 50% Monitoring reports communities to assets in fragile, number of functioning natural, physical and social infrastructure improvement in the score Cooperating partners’ distribution transition situations. assets at the community level) by the 94,000 participants reports to be targeted under the FFT programme Number of projects supported to create or restore community 46,000 participants to be Monitoring reports assets targeted under Food For Cooperating partners’ distribution Work. reports Strategic Objective 3: To augment the resources and capacities of local Government and communities to respond to emergencies and manage their early recovery. To enhance the skills of targeted Proportion of FFT participants applying acquired skills for 94,000 participants to be Monitoring reports communities thus improving their improving livelihoods. targeted under food for Cooperating partners’ distribution resilience to shocks. training reports Number of women and men trained in livelihood-support thematic Monitoring reports areas Cooperating partners’ distribution reports

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Strategic Objective 4: To establish structures and mechanisms to ensure the protection of vulnerable individuals and groups. To increase the attendance of Percentage of pregnant and lactating women receiving at least 4 10,000 pregnant and Medical reports pregnant and lactating women at antenatal and postnatal visits in target areas. lactating women reached health centres. To increase the enrolment of Average annual rate of retention of children in schools assisted by 90% or above of 70,000 DepEd reports children, including IDPs and Food Security and Agriculture Clusters. pupils to be targeted during Monitoring reports returnees, in schools assisted by the the 2010/2011 school year Food Security and Agriculture Cluster. To strengthen the public and Number of community organizations created or strengthened, 200 Community Monitoring reports.(3 monthly) community based institutions providing services to their members, Organizations providing responsible for sector development services. and service provisions (e.g. extension). To increase food production among Increased outputs of major crops, fish catches, livestock and 80% or above of the over Department of Agriculture reports and resettled and returnee households. poultry 50,000 farmers targeted, statistics are producing more food. Monitoring reports (3 monthly) Area (hectares) of farm newly planted 70% or above of the abandoned farm land has been planted.

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7.5 Health Health Cluster Response Plan: summary Government Lead Agency Department of Health (DoH) – ARMM Cluster Lead Agency(s) WHO Implementing Agencies UNFPA, MYROi, MTB, IOM, WHO Number of Projects Five Cluster Objectives 1. To ensure the provision of essential public health services in IDP sites and return areas, including reproductive health services. 2. To strengthen the health sector referral system. Total Number of Beneficiaries Female: 138,114 Male: 124,411 Total: 262,525 Funds Requested $2,554,415 Funds requested per priority level Returnees: A-Immediate $307,912 Returnees: B-High $261,055 IDP/Host Communities: A-Immediate $819,192 IDP/Host Communities: B-High $1,166,256 Contact Information Dr. Gerardo Medina [email protected] Needs analysis According to the Health Cluster Survey undertaken in March 2009 in preparation for the development of a Humanitarian Action Plan and subsequent surveys conducted in IDP sites and return areas by cluster member agencies indicate that overall, the increased demand for services brought about by the conflict and the large numbers of displaced has caused further strain on the health resources of host communities, which for many years have themselves been lacking staff, supplies and equipment. At the same time, the conflict has hampered the implementation of public health programmes in rural communities because of the reluctance of health workers to visit these areas (due to security concerns). Several Barangay Health Stations (BHS) serving IDP sites and return areas have suffered damage due to the conflict, with some being burned down completely. For those that are still functional, medicines and supplies are either inadequate or completely lacking. Humanitarian agencies are the main source of medicines and supplies for many rural health facilities. The local health system is unable to conduct outreach services due to lack of capacity and resources, especially staffing. Many Barangay Health Stations have no regular staff and many Rural Health Units (RHUs) do not have their own doctors. Most, if not all, rural midwives serve between three and four barangays each and the few municipal health officers available oversee one or two other municipalities in addition to their own. Maintaining cold chain integrity is challenging due to the unstable electric power supply, especially in the conflict-affected areas. No outbreaks of communicable diseases have been reported in the IDP sites in recent months and respiratory infection remains the most common reason for medical consultations. IDP patients who need higher levels of medical care are referred to the medical centre located in Cotabato City, a tertiary level hospital which is far from the IDP sites. Difficulties in geographic and financial access lead to refusal on the part of some IDPs to be referred to this facility. Higher level facilities that are more accessible to the IDP sites do not have the necessary resources and capacities to accept referred patients. Three assessments conducted by UNFPA in March, May and August 2009 recorded increasing numbers of pregnant women among the IDPs. Around 10% of babies were still being delivered by untrained traditional birth attendants using unhygienic practices that risk sepsis and death for the mother and the neonate. A rise in sexually-transmitted infection (STI) cases, especially syphilis among pregnant women, has been consistently reported by health NGOs. Family planning commodities are in short supply which could lead to unwanted and unplanned pregnancies. Close proximity of boys and girls due to overcrowded camp conditions, which is frowned upon by the local Muslim culture, has resulted in many early marriages and teenage pregnancies.

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Beneficiaries Beneficiaries Location Female Male Total Maguindanao 123,727 114,208 237,935 North Cotabato 11,387 8,203 19,590 South Cotabato Sultan Kudarat 3,000 2,000 5,000 Lanao del Sur Lanao del Norte Total 138,114 124,411 262,525 Reproductive Health 80,000 20,000 10,000 Beneficiaries Review of progress to date Over the past two years, Cluster members have provided equipment, medical supplies and drugs to various RHUs within Maguindanao and North Cotabato. The ACT for Peace programme has ongoing projects to construct and rehabilitate RHUs in different areas of Maguindanao. WHO has provided Interagency Diarrheal Disease Kit (IDDK), Interagency Emergency Health Kit (IEHK), assorted drugs and medical supplies, as well as fifteen units of vaccine refrigerators that can be operated by both electricity and gas. WHO is supporting two hospitals, namely Maguindanao Provincial Hospital and Dinaig Municipal Hospital, to build their capacities as referral units. The Comprehensive Emergency Obstetric and Neonatal Care (CEMoNC) and Basic Emergency Obstetric and Neonatal Care (BEMoNC) capacities of these hospitals and three other health units, including Sharif Saidona RHU, Pagatin, Sultan sa Barongis, will be upgraded, an X-Ray machine will be provided to the Integrated Provincial Health Office and medical specialists will be hired for a period of six months. MSF is the only agency that was conducting mobile clinics, initially at Datu Piang, Dapiawan of Datu Saudi Ampatuan and . Over time, MSF increased the frequency and scope of its mobile clinics to include Libutan Mamasapano, Bagan and Datu Angal Midtimbang and, more recently, within the rido affected municipalities of Sultan sa Barongis and . From August 2010, MSF ceased its mobile clinics (with the exception of Libutan) and instead supported RHUs in Datu Piang and Bagan. MSF officially closed down its operations in Mindanao in November 2010. UNFPA caters to the sexual and reproductive health (SRH) needs of IDPs and returnees and operates a mobile clinic and laboratory with the capacity to conduct prenatal and postnatal check-ups, normal deliveries, STI screening and management, family planning counselling and provision of family planning (FP) commodities. UNFPA has distributed dignity kits (hygiene kits) and clean delivery packs to pregnant IDPs and has conducted four Minimum Initial Service Package (MISP) trainings for sexual and reproductive health in Mindanao, producing a core of around 100 humanitarian workers capable of providing sexual and reproductive health services.23 In addition, UNFPA organised seven IDP Multi-sector Teams (IDP-MT), which are modified Women’s Health Teams (WHT) for the Evacuation Centers composed of an IDP Area Leader, representatives of women and youth groups, a Muslim religious leader, a traditional birth attendant and barangay health workers. The IDP-MTs assist in the implementation of UNFPA’s interventions in IDP sites such as data gathering, distribution of hygiene and reproductive health kits, conduct of Health Information Sessions (HIS), referral of clients to UNFPA’s mobile clinic and laboratory and identification and referral of GBV survivors to appropriate service providers. Reproductive health kits have been provided in Evacuation Centers in Maguindanao, Sultan Kudarat, Lanao del Sur, Basilan and Sulu. UNFPA also provided two mobile hospitals to Department of Health - ARMM, one of which is in Maguindanao and the other in Sulu. MSF, in coordination with the IPHO Maguindanao, trained selected staff on the conduct of Expanded Program of Immunization (EPI). The Philippines National Red Cross (PNRC) trained selected volunteers in Mamasapano on Basic Life Support.

23 The training aimed to increase the capacity of health workers, disaster management staff and social workers in the provision of initial services to pregnant and lactating women, adolescents and children, with regard to their reproductive health needs (including prenatal, intra-partum and postnatal care, family planning, prevention and initial treatment of STI including HIV-AIDS, prevention of violence against women and children, victim survivors, male involvement in women’s health care, adolescent reproductive and sexual health care and care of neonates.

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Cluster objectives The Health Cluster and Reproductive Health Sub-Cluster have determined the following objectives: Objective 1: To ensure the provision of essential public health services in IDP sites and return areas, including reproductive health services. IDPs remaining in Evacuation Centers and host families, as well as those who have returned to their areas of origin, should have access to essential public health services. Health facilities that are near IDP/return sites or have IDP/return sites within their area of coverage must be capacitated to be able to provide services, continue to implement public health programmes and function as first level referral facilities. Augmentation of health resources in terms of staffing, medicines, supplies and equipment is necessary. Integrity of the cold chain must be maintained to ensure minimal or no disruption of immunisation activities. Capacities for disaster risk reduction, disaster preparedness and contingency planning shall be built within the Health Cluster system. Reproductive health services, including counselling and post-exposure prophylaxis for victims of SGBV, should continue to be accessible to IDPs. Reproductive health and hygiene kits and medical supplies must continue to be distributed to health service providers and clients. For sustainability, the capacities of health facilities in return and resettlement areas need to be strengthened through service provider training in the MISP, equipment upgrading and technical support, so as to enhance their ability to provide for the needs of the population in their areas of coverage in the medium and long term. Objective 2: To strengthen health sector referral system. The referral systems of the health sector need to be revived and strengthened, from the point where the patient is determined to need referral up to his/her management in the referral facility and back to his/her community. Together with the rehabilitation of community primary care facilities, there is a need to build the capacity of hospitals close to the conflict-affected areas so that they are able to manage patients requiring more specialised services, such as those with severe malnutrition or needing surgical interventions. There must be an assurance that IDPs will receive the necessary treatment for their illnesses without the need to dip into their pockets for medicines and other supplies. The system of back referrals also needs to be enhanced to ensure continuity of care for those discharged from the hospitals. The community should also have greater awareness of the system of referral. The reproductive health referral system should also be strengthened, with the mobile clinic able to refer pregnant women with complications and other life-threatening cases to the nearest accredited Basic Emergency Obstetric and Neonatal Care or Comprehensive Emergency Obstetric and Neonatal Care facility in the area. Inter-relations with other Clusters Especially in emergencies, the health status of affected populations is dependent not only on the presence, or absence, of essential health services but also on prevailing environmental conditions, availability of safe drinking water, proper personal and household hygiene and basic sanitation. Outbreaks of watery diarrhoea, commonly seen in emergencies, are caused by the lack of potable water and sanitation facilities, thus highlighting the importance of coordination between the Health and WASH Clusters. Coordination with the WASH Cluster is also important to address the needs of women and girls of reproductive age to meet their special needs (hygiene or “dignity” kits). Nutritional status can spell the difference between surviving or dying from a communicable disease, especially for children. Pregnant and lactating women must also be provided with nutritious food for the healthy growth of their babies and for themselves. To be able to successfully manage malnutrition in emergencies, essential public health services such as immunisation must be available. Supplemental feeding of vulnerable groups needs to be jointly conducted with the Food and Nutrition Clusters. The Reproductive Health Working Group will also coordinate with these clusters for the simultaneous provision of reproductive health services to pregnant and lactating women when the supplemental feeding sessions are scheduled. Meanwhile, coordination with the Protection Group will be necessary for the clinical management of rape and other injuries caused by GBV.

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Risks Renewed hostilities between Government forces and the MILF, continued fighting among rival families and political clans (rido) and natural events like floods and landslides, which are common during the rainy season, will increase the health vulnerabilities and needs of the conflict-affected populations. This could also adversely affect the delivery of essential health services, including reproductive health, to those still in the Evacuation Center and those who have returned to their communities but continue to need assistance. Monitoring plan Based on the number of projects that will receive funding, the Cluster will develop a joint monitoring plan with commonly agreed health and reproductive health indicators and timelines. Methodologies will include review of records from health facilities, ocular surveys and agency updates in cluster meetings.

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Summary table Strategic Objective 1: To support the Government to address the humanitarian needs of affected populations in a timely manner. Linked Cluster objectives Indicators Target Monitoring method and frequency To ensure the provision of essential Availability of health service providers in IDP At least 1 CHW per 1,000 people in IDP site DoH records and programme reports public health services including sites and return areas At least 1 visit from a midwife per week for Cluster reports reproductive health in IDP sites and return areas Agency reports return areas. At least 1 functional IDP multi-sector team per DSWD records and reports conflict-affected municipality Surveillance reports Number of beneficiaries served by health Based on programme targets IDP-MT Reports (Pregnancy Tracking programmes. At least 95% coverage of measles vaccination Form, reports & IEC Reports) for children under 5 in IDP sites and urban IDP Medical Team Client List, Treatment setting and 80% in rural return areas Records and Monthly Reports At least 80% of women and girls in the IDP sites provided with RH services Number of communicable disease outbreaks Number (%) of suspected outbreak investigated Surveillance reports and responded to. Number of pregnant women in the IDP areas 90% of pregnant women delivering safely in the IDP-MT Reports (Pregnancy Tracking who delivered safely, a live, healthy baby mobile clinic or in referral facilities Form/reports and IEC Reports) Zero mortality for newborns delivered in the mobile clinic and in referral facilities To strengthen health sector referral Number of attended cases that were 100% of cases from IDP sites and return areas. Health facility records system. correctly referred to the appropriate level Reports and reviews Number of referred cases successfully Referral forms from both ends managed by referral facility Number of treated cases properly referred back to the RHU/BHS for follow-up Number of functional BEMoNC and CEMoNC At least two hospitals Hospital records review facilities Ocular inspections

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7.6 Nutrition Nutrition Cluster Response Plan: summary Government Lead Agency Department of Health (DoH) Cluster Lead Agency(s) UNICEF Implementing Agencies DoH, Save the Children, MTB, CFSI, MYROi Number of Projects Three Cluster Objectives 1. To assess in a timely manner the nutritional status of IDPs, returnees and host communities, including score and severity of the nutritional situation, causes of malnutrition and contextual factors, to inform decision-making and response. 2. To ensure the availability of appropriate and comprehensive treatment of acute malnutrition for IDPs, returnees and host communities. 3. To ensure the promotion, support and protection of appropriate infant and young child feeding practices among IDPs, returnees and host communities. 4. To ensure that children and pregnant and lactating women have access to micronutrients from fortified food, supplements or multiple micronutrient preparations. Total Number of Beneficiaries 82,236 Funds Requested $2,014,000 Funds requested per priority level Returnees. B-High $800,000 IDP/Host Communities: B-High $1,214,000 Contact Information Michael Emerson Gnilo Email:[email protected] Needs analysis A national survey conducted every five years by the Food and Nutrition Research Institute is the primary source of information on the nutrition and food security status for the country, while information on breastfeeding and infant and young child feeding (IYCF) is collected by the National Health Demographic Surveys (NDHS). To a certain degree, the data from these surveys can be disaggregated into the regional and provincial levels. The surveys of the last decade show that in the provinces of Mindanao covered by the HAP, the rate of global acute malnutrition is higher than the national level, with a range of 5.9% (Lanao del Sur) to 8.3% (North Cotabato).24 The surveys assess trends in the country but do not provide the proper monitoring needs for a nutrition programme, highlighting the need for smaller scale surveys that are conducted at least annually at the provincial level and that can uncover pockets of malnutrition in the most vulnerable areas in Mindanao. During the first quarter of 2009, a Joint Nutrition and Food Security Assessment covering the conflict- affected IDP populations in Maguindanao, North Cotabato, Lanao del Sur and Lanao del Norte was led by UNICEF and WFP. The assessment highlighted the disparity between the national rates for global acute malnutrition of 6.1% (NNS-FNRI 2008) and global acute malnutrition rates in conflict- affected areas of 9.8% (Joint Nutrition Food Security Assessment, 2009), bordering the 10% threshold that requires urgent intervention. It further demonstrated that global acute malnutrition is highest among IDP children of less than two years of age, with a peak of 22.1% at age two. Severe Acute Malnutrition was as high as 2.2% and all SAM cases were found in infants of between six and 30 months of age. The assessment also found that 87% of households faced food insecurity, were eating less preferred foods and 75% were limiting their meal sizes, thereby decreasing dietary diversity, exacerbating pre-existing macronutrient and micronutrient deficiencies, and aggravating the likelihood of malnutrition. During the qualitative part of the assessment, it was found that 21% of respondents were breastfeeding less and that complementary food was consistently being given less than the recommended three times per day to children under two years of age. The assessment found that the areas affected by armed conflict had a poorer nutritional status and therefore an increased risk of disease and death.

24 At the national level, the rate of global acute malnutrition has fluctuated over the past 20 years from 5.0 to 6.7%, and fell below 5% in 2005 (see National Nutrition Survey (NNS) - FNRI, 1989-90- 2005).

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In line with the low national global acute malnutrition rate, treatment of SAM has not been a programme priority of the Government. In the past, malnutrition wards managed by the Department of Health were present in many hospitals, but today, there remain only a few across the country. There is no national programme for the treatment of acute malnutrition at the community level. Guidelines for the treatment of acute malnutrition need to be updated. In the conflict-affected areas of Mindanao, availability of treatment is highly dependent on the international NGOs, including Save the Children, and the human resources and logistics support from UNICEF for ready-to-use therapeutic food (RUTF) and other essential supplies. Beneficiaries Beneficiaries Affected population25 Children under 5 Pregnant and Lactating Total Female Male Total Female Male Location Women Maguindanao 140,898 93,932 234,830 25,362 16,908 10,728 52,998 North Cotabato 76,884 51,256 128,140 13,839 9,226 5,853 28,918 Lanao del Sur 831 554 1385 150 100 70 320 Total 218,613 145,742 364,355 39,351 26,234 16,651 82,236 Beneficiary children under five = total population x 0.20 (children under five) x 0.90 (target coverage) x 0.10 (GAM) x 1.5 incidence factor Beneficiary women = total number of women x 0.47 (child bearing age) x 0.18 (average fertility rate) x 0.90 (target coverage) Review of progress to date Since the Joint Nutrition and Food Security Assessment in 2009, MSF and Save the Children, with support from UNICEF, have provided treatment for the management of SAM in five municipalities of North Cotabato and seven municipalities in Maguindanao. WFP provided supplementary feeding for those with Moderate Acute Malnutrition. During the MSF therapeutic feeding programme in 2010 a total of 192 SAM children were treated and for the three months of operation of SC another 120 children were treated. In the past six months, over 15,000 children were screened for acute malnutrition using Mid-Upper Arm Circumference (MUAC) measurements. According to the 2010 reports of Save the Children, the implementation of the community-based management of acute malnutrition (CMAM) and other interventions led to lower prevalence of acute malnutrition when compared with communities without CMAM implementation. The global acute malnutrition prevalence in CMAM sites was 7.9% compared to 9.4% in non-CMAM communities. Although the difference in acute malnutrition prevalence is not significant with the overlap, the potential for achieving greater impact through strengthened and wider implementation of the programme is promising. Cluster objectives The 12 municipalities previously covered by MSF and Save the Children with their therapeutic feeding programmes represent only around 20% of the total number of municipalities of North Cotabato and Maguindanao. Interventions are lacking in Lanao del Norte, Lanao del Sur, South Cotabato and Sultan Kudarat. MSF, whose therapeutic feeding programme covered five sites in Maguindanao, officially closed down its operations in Mindanao in November 2010. A component of their caseload will be taken up by UNICEF and Save the Children as implementing partner. There were no established dedicated 24 hour stabilisation centres to manage SAM patients with complications. The key constraint preventing access to children is insecurity in areas where armed clashes continue and areas where threats of kidnapping have been a problem. During May 2010, the threat of election violence slowed down nutrition activities. Another key factor is the number of implementing partners with the technical capacity to manage cases of SAM. The technical capacity required to treat SAM is highly specialised and treatment success is anchored on good training and experience. Local NGOs are inexperienced in terms of this work but are able to support in other components of the programme.

25 Using IOM September 2010 data as source.

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Objective 1: Nutrition surveillance and screening In the needs analysis it was emphasised that there is national nutrition survey conducted by the Food and Nutrition Research Institute every five years. However, this does not provide the level of information needed to identify the needs in the local context because of the difficulty of disaggregation of data at the local levels. In partial response to this, the Nutrition Cluster as a whole has conducted two nutrition surveys in 2009 (Joint UNICEF-WFP Nutrition and Food Security Survey 2009) and by an independent survey by Save the Children in 2010 as part of its project evaluation. The Government at the local level lacks the technical and financial resources to conduct such surveys. To address this problem, the Nutrition Cluster plan proposes that an assessment is conducted at least annually, with humanitarian agencies providing technical support to the Government. Active and passive screening will be conducted in targeted areas to provide a more accurate picture of the incidence of acute malnutrition, for planning and response purposes. Screening may be conducted in health facilities, mobile clinics, child friendly spaces, temporary learning centres and in the communities. Objective 2: Community-based Management of Acute Malnutrition Addressing acute malnutrition is the top priority in terms of intervention, which is also the most challenging. This requires a strong coordination effort from all Cluster members to succeed. In the previous interventions of CMAM by MSF and Save the Children, it became apparent that there is a need for the development of national guidelines for CMAM, integration of CMAM within the existing health system and services and capacity development as key to the success of CMAM. The strategy of the Nutrition Cluster is to continue to provide CMAM services through mobile clinics operated by NGOs, especially in areas less accessible due to insecurity, and also through the health facilities of the Government. In parallel to the provision of CMAM services, capacity development through training and mentoring shall be conducted with the local government health facilities and local NGO partners. Other activities that will be significant contributors to success are the development of an acute malnutrition database, a strengthened referral system between therapeutic feeding centres and stabilisation centres, and the establishment of distribution points for supplementary feeding. The improved processing of documentation will be of particular importance to contribute towards possible solutions for future emergencies with an acute malnutrition component, as well as into the regular programmes for the treatment of acute malnutrition in the Philippines. Objective 3: Improving Infant and Young Child Feeding Practices (IYCF) The urgent need to focus on infant feeding and young child feeding is highlighted by the fact that the major percentage of those malnourished are between the ages of 6-30 months, together with reports of children under the age of six months with acute malnutrition. Although this objective has the appearance of a development intervention, it is necessary to fast track IYCF programmes in the context of a chronic emergency in order to prevent morbidity and mortality caused by acute malnutrition. Local NGO partners, along with the government health units, will be engaged and provided with training to prepare them to conduct nutrition education sessions and counselling skills on appropriate IYCF practices, as well as the organization of support groups. Training will cover the key aspects of Nutrition in Emergencies, the importance of exclusive breastfeeding and complementary feeding through behaviour-change-communication, using the IYCF in Emergencies operational guidance. Identification of a means of monitoring milk donations and of ensuring the availability of “safe areas” for breastfeeding will also be components of this intervention. Objective 4: Ensuring Access to Micronutrients The final component of the Nutrition Cluster Response Plan is that children, pregnant and lactating women have access to micronutrients from fortified food, supplements or multiple micronutrient preparations. This will include appropriate complementary and fortified food, micronutrient powders, Vitamin A and de-worming. Inter-relations with other Clusters Success of the nutrition interventions, particularly the therapeutic feeding programmes depend highly on other Cluster interventions and coordination.

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Health Cluster: The Joint Nutrition and Food Security Assessment in 2009 found that illness was the strongest underlying factor associated with acute malnutrition. The Health Cluster needs to address the immunisation needs in areas most affected. Referral systems need to be strengthened and human resources and supplies such as medicine and drugs need to be augmented in the health facilities. It is important that pregnant mothers are taught long before their babies are born to exclusively breastfeed for six months and that early initiation of breastfeeding is ensured in health facilities. Proper complementary feeding is also essential in decreasing the SAM cases and to ensure they do not recur. In this regard, coordination with Reproductive Health actors is very important. WASH Cluster: The lack of proper hand washing in the communities, which is further aggravated by the lack of access to safe and potable water, renders WASH a major concern. Food Security and Agriculture Clusters: A major factor in ensuring the prevention of relapse is ensuring that there is good food security in the affected areas. Efforts need to be coordinated to protect families’ food security, especially those where there is a malnourished child. The cultural norm is that therapeutic food or supplementary food will be shared with the rest of the family, unless a protection ration is ensured. Education Cluster: Schools and child friendly spaces are good places to screen children for malnutrition and are also good places to teach nutrition. It is an effective means by which to reach the siblings of malnourished children to ensure that they do not share and eat the therapeutic food. Risks The effects of the 2008 armed conflict and flooding in the provinces of these regions were found to have exacerbated pre-existing risks and vulnerabilities to malnutrition. Vulnerable groups within the IDP population, such as children under five years old and pregnant and lactating women, have been subjected to physical and psychological stresses. The success of CMAM is dependent on INGO partners for their expertise and yet the security context in the region limits movement for internationals. Therefore, local NGOs and communities themselves will have to play a significant role in managing nutrition interventions, as is the case with other clusters. Local NGO human resources are finite, however, and may not be able to accommodate all projects, thus posing considerable risks to the implementation of the plan. To mitigate this risk, great focus should be placed on building the capacity of government officials through on the job training and mentoring on CMAM. Monitoring plan One of the main objectives of the Nutrition Cluster is to conduct surveys in the affected areas on a smaller scale than those conducted by the Food and Nutrition Research Institute every five years. It also aims to conduct surveillance using MUAC as a monitoring tool. These will be done passively in the health centres but also actively in schools, child friendly spaces and in the community through volunteers. Site level evaluation will also be conducted to check the quality of services in the outpatient therapeutic centres. As for programme monitoring, the Cluster has reached an agreement in the past to use common indicators for acute malnutrition, although a common database still needs to be developed. This will include all children admitted into the programme. Monthly reports from the Government and implementing partners will be collected through the Cluster and reported through the monthly situation updates.

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Summary table Strategic Objective 1: To support the Government to address the humanitarian needs of affected populations in a timely manner. Linked Cluster objectives Indicators Target Monitoring method and frequency To assess in a timely manner the Number of nutrition surveys conducted At least 1 nutrition assessment Surveillance reports nutritional status of IDPs and host conducted in all targeted areas per Active and passive screening reports communities, including score and year severity of the nutritional situation, Number of children screened using MUAC 80% of children under 5 years old in Monthly screening reports causes of malnutrition and contextual target areas are screened using factors, to inform decision-making and MUAC every 6 months response. Number of sites where screening is conducted All target sites have active and Monthly Screening reports passive screening Strategic Objective 2: To establish an enabling environment for the implementation of durable solutions for affected populations. To ensure the availability of appropriate Number of sites with functioning therapeutic and Rural CMAM coverage >50% Monthly reports from Government and and comprehensive treatment of acute targeted supplementary feeding programmes Urban CMAM coverage >70% Cluster partners malnutrition for IDPs and host Camp CMAM coverage >90% communities. Number of children, pregnant and lactating women All children aged 6-59 months and Monthly reports from Government and enrolled in CMAM pregnant and lactating women Cluster partners screened, diagnosed and willing to undergo treatment are enrolled Number of children, pregnant and lactating women Recovery rate >75% Monthly reports from Government and are successfully treated Death rate for therapeutic care <10% Cluster partners Mortality rate for supplementary care <3% Strategic Objective 3: To develop the capacities of local Government and communities to respond to emergencies and manage their early recovery. To ensure the promotion, support and Number of “safe spaces” that support, protect and At least one for every Evacuation Monthly reports from Government and protection of appropriate IYCF practices promote early initiation and exclusive breastfeeding Center Cluster partners among IDPs and host communities. (e.g. lactation corners or breastfeeding tents) established and used by mothers of infants and young children Percentage of health facility staff trained on IYCF 80% of all nutrition action officers Monthly reports from Government and (including IYCF-E) and disseminate information on trained on IYCF and mobilised for Cluster partners nutrition and available nutrition services in the area. communicating nutrition education messages and nutrition programme activities Number of skilled IYCF counsellors and/or 1 counsellor or support group per 15 Monthly reports from Government and functioning support groups to 25 mothers Cluster partners Number breastfed 0-5 months of age No increase in subsequent monitoring Rapid Assessment/Nutrition Surveys Number of powdered milk, infant formula, breast Zero milk and breast milk substitute Monthly reports from Government and milk substitutes, bottles, teats and artificial nipple donation in target areas; All breast Cluster partners donated, distributed and used in target areas milk substitute and milk powder use is monitored and controlled

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Strategic Objective 4: To establish structures and mechanisms to ensure the protection of vulnerable individuals and groups. To ensure that children and pregnant and Number of children aged 6-59 months with access >90% of children 6-59 months are Monthly reports from Government and lactating women have access to to fortified complementary food or multiple given at least 2 sachets of multiple Cluster partners micronutrients from fortified food, micronutrient powders micronutrient powders per week supplements or multiple micronutrient Number of pregnant and lactating women with >90% of pregnant and lactating preparations. access to multiple micronutrient supplements mothers are given multiple (including iron-folic acid tablets) micronutrient powers daily Number of children aged 6-59 months >80% coverage of Monthly reports from Government and supplemented with Vitamin A within the past 6 supplementation activities among Cluster partners months children aged 0-59 months Number of children aged 12-59 months given de- >90% coverage of de-worming Monthly reports from Government and worming tablets within the past 6 months activities Cluster partners Number of micronutrient powders, vitamin A and Monthly reports from Government and de-worming tablets procured and distributed Cluster partners

69 Mindanao Humanitarian Action plan 2010 - 2011 7.7 Protection Protection / SGBV / Child Protection Response Plans: summary Government Lead Agency Department of Social Welfare and Development (DSWD) Cluster /sector Lead Agency(s) Protection: UNHCR SGBV: UNFPA and UNICEF Child Protection: UNICEF Implementing Agencies UNHCR, UNFPA, UNICEF, IOM, Oxfam, ACF, MTB, KFI, NP, CFSI, MinHRAC, Save the Children, NRC, DSWD, OPAPP and other members of Mindanao Protection Cluster, GBV Sub-Cluster and Child Protection Sub-Cluster Number of Projects Protection: UNHCR (One), MinHRAC (One) Child Protection: UNICEF (Three) SGBV: UNFPA (One) Cluster /sector Objectives 1. To ensure the development of a protection environment in which protection principles are recognised and applied in all humanitarian responses. 2. To establish needs of returning IDP population and to strengthen community self reliance and livelihoods opportunities. 3. To ensure the existence of protection mechanisms capable of providing support in a timely manner, through effective coordination, clear referral pathways, early warning and response and identification of vulnerable groups. 4. To ensure the provision of essential protection services in IDP sites and return areas to all children, women and other vulnerable groups. Total number of beneficiaries Protection: 1,068,802 GBV: 1,068,802 Child Protection: 96,745 Funds Requested Total: $5,537,704 Protection: $2,190,904 SGBV: $ 346,800 Child Protection: $3,000,000 Funds requested per priority level Returnees: B-High $1,899,347 IDP/Host Communities: B-High $2,638,357 Not Specified $1,000,000 Contact Information Hirokazu Kudo [email protected] PROTECTION – UNHCR figures only Beneficiaries Location Category Female Male Total IDP & host Maguindanao 239,972 196,340 436,312 Returnees IDP & host North Cotabato 93,434 76,446 169,880 Returnees IDP & host South Cotabato 36,382 29,768 66,150 Returnees IDP & host Sultan Kudarat 91,784 75,096 166,880 Returnees IDP & host Lanao Del Sur 90,643 74,162 164,805 Returnees IDP & host Lanao del Norte 35,626 29,149 64,775 Returnees Total 587,841 480,961 1,068,802 Note: These figures are tentative combining data for IDP/host and returnees and refer to UNHCR figures only. Premise of these figures are 2011 and inclusive of indirect beneficiaries. Through the proposed activities, UNHCR initial intention is to address the most urgent and critical needs of 102,500 IDPs/returnees in Maguindanao, composed of 20,500 children, 45,000 women and 37,000 males. PROTECTION – MinHRAC Beneficiaries Location Category Female Male Total IDP & host Maguindanao 160 240 400 Returnees IDP & host North Cotabato 160 240 400 Returnees IDP & host South Cotabato 80 120 200 Returnees IDP & host Sultan Kudarat 80 120 200 Returnees

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Beneficiaries Location Category Female Male Total IDP & host Lanao Del Sur 120 180 300 Returnees IDP & host Lanao del Norte 120 180 300 Returnees Total 720 1080 1800 GENDER-BASED VIOLENCE (GBV) Prevention & Response in Conflict Affected Mindanao Beneficiaries Location Category Female Male Total Maguindanao IDP & host 239,972 196,340 436,312 Returnees North Cotabato IDP & host 93,434 76,446 169,880 Returnees South Cotabato IDP & host 36,382 29,768 66,150 Returnees Sultan Kudarat IDP & host 91,784 75,096 166,880 Returnees Lanao Del Sur IDP & host 90,643 74,162 164,805 Returnees Lanao del Norte IDP & host 35,626 29,149 64,775 Returnees Total 587,841 480,961 1,068,802 Note: As recommended by the GenCap Adviser, UNFPA is using UNHCR figures for its beneficiaries.

CHILD PROTECTION – UNICEF figures only Beneficiaries (Under 18) Location Girls Boys Total Maguindanao 30,293 20,195 50,488 North Cotabato 16,529 11,019 27,548 South Cotabato 439 292 731 Sultan Kudarat 3,570 2,984 6,554 Lanao del Sur 2,322 824 3,146 Lanao del Norte 5,870 2,408 8,278 Total 59,023 37,722 96,745 Note: Target beneficiaries will also include children’s association with armed forces and groups (CAAFG) and their communities. Under the UN-MILF Action Plan, children’s association with armed forces and groups are being registered in the ‘core’ areas of the 21 Base Commands of the MILF. One of the aims of this project is to establish the very baseline figures/data required for the HAP. Upon completion of the registration process, data analysis will take place towards developing an appropriate support strategy. Needs Analysis Needs Analysis - Protection In the context of armed conflict, protection in Mindanao is regarded as physical protection from direct fighting. While a network of grassroots human rights NGOs exists, and governmental organizations, such as the DSWD and the Armed Forces of the Philippines have shown significant interest in expanding protection knowledge, significant gaps in the understanding and application of protection principles remain. A UNHCR-OCHA Inter-agency Scoping Mission in July 2010 determined the following protection concerns: • Restricted definition of displacement: The lack of clarity, and limited application, of the definition of IDP by the authorities exclude groups who would be regarded as displaced within the international normative framework. • An incomplete national IDP policy framework hinders the ability of humanitarian actors to work with national actors to reinforce understanding, acceptance and fulfilment of responsibilities in relation to all displaced populations. • Limited capacity and understanding of local actors on their roles in relation to protection concerns related to displacement, and the normative framework. • Voluntary aspects of the return process: While many IDPs have already returned or express their desire to return home, many also express concerns around security (including unexploded ordnance or “UXO”), the ability to rebuild or regain livelihoods on return, and the potential for future displacement. Withdrawal of recognition for some of their status as displaced populations and cessation of assistance may undermine the principles of voluntary return.

71 Mindanao Humanitarian Action plan 2010 - 2011 • Lack of consideration or strategic planning for alternative durable solutions: Return has so far been predominantly considered as ‘the’ durable solution, limiting choice, planning or support for alternatives. • Gaps in registration systems for displaced hinders recognition of their position and specific needs. This should be placed in a context where there is no formal identify documentation for the population as a whole and, in some areas, very limited coverage (although systems exist for this) by even basic birth registration and related documentation. • Lack of participation of the population in decision-making: While to a certain extent there appears to be a cultural acceptance of decision-making by leaders on their behalf, there was limited apparent engagement with the affected population itself – including specific vulnerable groups within this – on their views and concerns. The extent to which leaders really represented constituent populations, or controlled their choices, is unclear. • No increased support by authorities to hosting areas: IDPs have used local structures (e.g. school buildings) and children have been accepted into school programmes, yet hosting areas do not appear to have received any additional assistance from national resources. While there was no indication of tension between hosting and displaced populations as a result of shared (and thus reduced) resources, the potential remains for this. • Indications of security problems as obstacles to return: A number of displaced “barangay captains” from an area controlled by the MILF expressed that they fear for their safety in their areas of origin. • Lack of access to health and education services: Inhabitants from areas in MILF-controlled areas reported that in some cases schools and health centres are too far away. Poor families reported that they are forced to sell assets (such as domestic animals) to pay for travel to the next health centre when they are sick. • Vulnerable groups: A number of specifically vulnerable groups have been identified (widows, children associated with armed groups, survivors of SGBV) requiring assistance, yet disaggregated data or clear information on their needs is not available. There is some, but limited, humanitarian programming to date in these areas. Community orientation activities, including focus group discussions, conducted by MinHRAC in seven of the worst affected municipalities in Maguindanao during the months of August to November 2010 in connection with a pilot civilian protection project, as well as an internal Provincial Assessment Workshop with MinHRAC’s own network in 10 Mindanao provinces during December 2010 revealed the following protection related concerns: • Information Gap: A common concern expressed during the orientation and focus group discussions is the lack of a coordinated effort to provide members of vulnerable communities with information on assistance they may avail of for the various protection concerns that they face. • Communications Gap: There is also very little awareness as to which institution can be approached for a particular protection concern. • Access Gap: Even in cases where there is awareness among members of vulnerable communities about the institutional mandates of the various agencies, they still face the problem of how to approach or access these institutions. Given the complex conflict dynamics in Mindanao, anecdotal reports indicate that SGBV and recruitment and use of minors were common across the spectrum of formalized militias, paramilitaries and local ridos. In August 2009, the UN and MILF signed an Action Plan to set out concrete, time bound steps to register, release and reintegrate children’s association with armed forces and groups back to civilian life. Early analysis of children’s involvement in military agenda in Mindanao points to a community driven dynamic, while more detail of the extent of children’s association with armed forces and groups use is expected to emerge in the implementation of this project. Similar strategies and commitments are sought with other state and non-state actors. Existence of UXO and other explosive remnants of armed conflict are frequently reported by the civilian population, the International Monitoring Team, humanitarian agencies, and various military personnel through the Coordinating Committee for the Cessation of Hostilities mechanism.

72 Mindanao Humanitarian Action plan 2010 - 2011 Identification of priority needs based on key indicators - Protection Return and resettlement of displaced IDPs remains a primary focus for both Government and humanitarian community for 2010 and 2011. In addition to developing an overarching protection environment in Mindanao, the then Protection Working Group in 2009, later transformed into Protection Cluster, identified IDP participation, information and data reliability, return of IDPs, systems/mechanism for seeking redress to address rights violations, and access to education as the five priority protection needs. Whereas the last priority is also addressed by the subsequently-formed Education Cluster, each priority remains highly relevant today, particularly in the six provinces addressed in this HAP. A primary, protection focus will surround the 16,131 displaced families in 65 sites affected by conflict and identified by the ARMM Government in its March 2010 assessment. Some of these families will be returned under the ARMM Early Recovery Plan between September and December 2010, while return plans for families in the remaining sites have not yet been finalized. The protection focus will encompass all returns under the ARMM Early Recovery Plan as well as others. MinHRAC has identified six conflict affected provinces with a total population of 3.2 million as the priority needs areas. These are the most conflict prone barangays in the six HAP provinces based on data from the Office of the Presidential Adviser on the Peace Process. Out of this, a total of 1,800 residents from 360 of the most vulnerable barangays will be the direct beneficiaries of a grassroots education program, with the expected multiplier effect to eventually benefit all the residents therein.

Key indicators used to assess needs Thresholds applied Reference to assessments Protection Cluster Strategy developed and Protection Cluster Regular meetings of the Protection implemented and key IDP policy and partners agree on Cluster, including reports from GBV advocacy issues addressed. strategy & advocacy Sub-Cluster and Child Protection Sub- issues Cluster Correspondence with government Number of training sessions held on basic All identified partners Feedback from organizations, trainers and specialized protection in 6 key provinces and participants involved in protection principles/practice have received training training on protection Surveys, interviews and focus group principles discussions % of IDP protection needs identified Registration system Profiling statistics & reports (disaggregated gender, age, vulnerable established & Civil registration reports and statistics groups) functional, and Project reports & statistics Number of IDP civil status documents identifying IDP issued protection needs Number of mobilized communities participating in assessment & conduct of livelihood activities Number of requests for assistance received 75% of all requests Internal database on requests received and acted on, responded to or referred received Number of participants and number of Participants from Training documentation and trainings conducted 75% of the identified participants’ feedback conflict affected communities Establishment of a reporting system Monitoring and The guidebook itself between grassroots monitors and the MAC Reporting Guidebook published and distributed Establishment of a referral pathway system Agreement on a Written or other documentation of between the MAC and partner agencies referral protocol or a referrals of actual cases. referral guideline with all key partner agencies Needs Analysis – GBV The Philippines is signatory to several international conventions and agreements that condemn GBV, specifically the Convention on the Elimination of All Forms of Discrimination against Women (CEDAW, 1993). The Convention on the Elimination of All Forms of Discrimination against Women defines violence against women as “any act of gender-based violence that results in or is likely to result in physical, sexual or psychological harm or suffering to women, including threats of such acts, coercion or arbitrary deprivation of liberty, whether occurring in public or private life’. In the context of the Philippines, violence against women is recognised as a serious crime that requires a holistic response.

73 Mindanao Humanitarian Action plan 2010 - 2011 Government agencies at the regional level are mandated to focus on prevention, prosecution, recovery and rehabilitation. In conflict-affected Mindanao, a dearth of information exists on the prevalence of GBV, particularly in Evacuation Centers and return and resettlement locations primarily because of a “culture of silence”. Nevertheless, the frequent movement of IDP populations between Evacuation Centers and places of return and/or resettlement creates specific gender and GBV-related vulnerabilities. Women and children are most vulnerable to exploitation, violence and abuse because of their gender, age and status. Men and boys are also subjected to violence particularly as a result of forced recruitment as soldiers or combatants. Families have been separated, which further results in a breakdown of traditional community support systems and protection mechanisms. Standard operating procedures (SOPs) on GBV prevention and response for Mindanao are being developed to provide appropriate mechanisms for prevention and response to GBV cases at the regional, provincial, municipal, community and even at the level of the IDP sites. Structural and practical measures need to be in place to ensure protection and reduce the risk of violence against women and girls in Evacuation Centres and places of resettlement and return. GBV protection measures will be advocated for adoption by the various humanitarian clusters. Identification of priority needs based on key indicators – GBV Key indicators used to assess Thresholds applied Reference to assessments needs No. of baseline assessment GBV Sub-Cluster formulation of Baseline report conducted on prevalence, causes, baseline tools. Report from partner agencies scope & consequences of GBV in 6 Conditions allow for baseline (DSWD, PNP, DOJ, etc) conflict affected areas/provinces assessment to be conducted. Key informant reports (Evacuation Centers and places of Prevalence, causes, scope and return) consequences of SGBV in 30% of IDP communities determined, documented and reported No. of SGBV data collection 50% of SGBV partners and SPs Field reports from SGBV data mechanisms established at municipal agree on the development and collection systems at municipal & and regional levels in conflict affected implementation of data regional levels in conflict affected areas (including EC and return collection methods and areas. (DSWD) locations) protocol. Reports on data collected Reports & analysis on data collected GBV Sub-Cluster prevention and SGBV strategy is contextually Regular updates from GBV Sub- response strategy developed (in line appropriate. Cluster member agencies with baseline assessment findings). Protection Cluster & GBV Sub- Report from SPs/Government No. of communities working with Cluster partners agree on agencies GBV Sub-Cluster SGBV strategy. Report from IDP teams 30% of IDP communities with GBV Sub-Cluster implementing contextually appropriate strategies. 90% of Protection Cluster and GBV Sub-Cluster partners agree on SGBV strategy. No. of community-based GBV 90% of SGBV partners have Feedback from the community prevention & response mechanisms access to and work with conflict developed affected communities to develop community based GBV prevention and response mechanisms, including a sensitive case- spotting strategy (considering the prevailing strong culture of silence and denial) 50% of IDPs with knowledge of context appropriate GBV prevention and response mechanisms No. of key SPs provided with skills on 10% of Stakeholders/SPs are Feedback from Protection training prevention & response to GBV: able and agree to participate in under the Protection Cluster DSWD, Police, Military, LGU, MRL, capacity building/training (ongoing) IDP and Community Leaders 90% of stakeholders/SPs agree Reports from partner agencies, Roll out of Standard Operating to implement SOPs in NGOs, stakeholders Procedures on SGBV (SoP, SGBV) respective govt agencies

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Key indicators used to assess Thresholds applied Reference to assessments needs No. of institutions/agencies 90% of Government agencies Reports from partner agencies implementing the SOPs where SOPs are No. of humanitarian clusters adopting institutionalised Progress reports GBV prevention measures and At least 5 clusters adopt GBV mainstreaming gender prevention measures and mainstream gender Needs Analysis - Child Protection Humanitarian response in child protection will adhere to the following guiding principles: 1. Children in the midst of armed conflict and natural disasters such as drought, floods and earthquakes have the same needs and rights as children in stable countries. 2. Our response will recognise the priority of humanitarian action while assuring safe access to affected populations and safety and security of staff and assets. 3. The emergency response will build on existing activities and partnerships developed through the country program of cooperation 4. The response will be based on nationally defined priorities and UNICEF comparative advantage. Most of the displaced families who have not returned to their original place of residence are concentrated in Maguindanao with a few pockets in North Cotabato. Children and their caregivers from these communities are suffering from profound distress because of their prolonged displacement and unstable condition. Parents are under severe stress to provide for their families in the midst of loss of their livelihood and erosion of their social network. The general impoverishment of these communities provides a gloomy backdrop to the situation. The potential for child abuse and exploitation is rife, including recruitment by armed groups or child traffickers. The MILF claims more than 3,800 barangays throughout Mindanao. Children’s involvement in the armed agenda is largely community driven, with children born into an armed struggle in which their parents are already involved. In the context of UN-MILF Action Plan on the issue of recruitment and use of minors in the armed conflict in Mindanao, rapid registration of children associated has been completed in the core communities of 18 of the 21 Base Commands of the MILF. This process is carried out in accordance with the broader Paris Principles definition of child soldiers and aims to build a protective environment for children within a community-based framework inclusive of all children living in those areas. By 2011, the registration process will be completed and independently verified, allowing for the roll-out of reintegration support. Child Protection in communities continues to be served by UNICEF and partners, the challenge is to build capacity and enhance families and communities to provide for and maintain services that promote resilience strategies, monitor and reunify children who have been separated from their family and community, educate communities on child trafficking and monitoring and reporting mechanism (MRM) with mechanisms that encompass Community Based Protection Networks. Psycho-social support Based on conservative data, CFSI has stated that over 37,556 of children between the 3 to 5 years of age are still in need of psycho-social support in Maguindanao alone. Urgent efforts are required to better protect and support these vulnerable groups (women and children), as well as to affirm and promote their resilience and emotional wellbeing.26 UNICEF and partners are reaching over 65,000 children through various psycho-social activities every week. So far, 73 child-friendly spaces have been established in 60 IDP camps and nine return areas that reach over 6,500 children. Sixty community-based child protection networks were organised in these IDP camps. These networks are composed of members of the communities mobilised to support the CFS and initiate child protection activities in their localities. More CFS will be established in IDP camps and return areas in other affected provinces. Child protection activities of the community- based child protection networks will also be expanded to include mine risk education (MRE), MRM of grave child rights violations and prevention of child trafficking.

26 UNICEF and Partners are reaching over 65,000 children through various psycho-social activities every week.

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Identification of priority needs based on key indicators – Child Protection Key indicators Thresholds applied Reference to assessments Separated and unaccompanied children All separated and unaccompanied Minutes of meetings identified and provided family-based care children in the affected areas are Reports of Common FTR system in place identified and provided with family- Government based care concerned agencies Reports of NGOs Field reports Child-friendly spaces established in 80% of displaced and vulnerable Minutes of meetings displacement and return sites children have access to psycho-social Reports of Youth and Children’s clubs established support activities, e.g. CFS, Youth and Government Child protection programmes that have Children’s Clubs etc. concerned agencies integrated psycho-social in their work, in line 100% of child protection programmes Reports of NGOs with the IASC MHPSS Guidelines in affected areas have integrated Field reports psycho-social in their work, in line with the IASC MHPSS Guidelines % of reported cases of grave child rights All cases of grave child rights violations Minutes of meetings violations in situations of conflict verified and in situations of conflict in the 6 Reports of responded to provinces are reported and responded Government A system of MRM on GCRV is established to concerned agencies Periodic reports produced Reports of NGOs Field reports A programme for reintegration of children Reintegration programme in place for Minutes of meetings associated with armed forces and armed CAAFAGs Reports of groups (CAAFAGs) is in place 100% of verified cases of recruitment Government % of reported cases of recruitment and use and use and arbitrary arrest and concerned agencies and arbitrary arrest and detention verified are detention are responded to. Reports of NGOs responded to. Field reports Community members reached with MRE 80% of affected communities reached Reports from messages with MRE messages community meetings Children reached with MRE messages System of response in place No of materials produced and disseminated Reports of NGOs Field reports Community Based Child Protection Networks 80% of affected communities have Reports from established community based child protection community meetings Community Welfare Volunteers chosen and systems established No of training sessions trained with community Youth Focal Points chosen and trained members Reports of NGOs Field reports LGUs able to provide child protection All provincial and municipal LGUs are Minutes of inter- response during emergencies trained and able to provide services on agency meetings Child protection in emergencies Reports of Government concerned agencies Reports of NGOs Field reports Objectives, outcomes, outputs, and indicators Objective 1: To ensure the development of a protection environment in which protection principles are recognised and applied in all humanitarian responses Under the Protection Cluster lead, a joint Protection Strategy will be developed based on a comprehensive review of existing protection mechanisms and gaps, the results of IDP profiling, and a Cluster-level strategy workshop. Policy reform and advocacy will also be a major activity of the Protection Cluster. The Protection Cluster, GBV Sub-Cluster and Child Protection Sub-Cluster will each hold regular meetings to develop and engage in ongoing activities to development and monitor the protection environment.

76 Mindanao Humanitarian Action plan 2010 - 2011 Training of Trainers and subsequent roll-outs of protection training will be conducted to enhance understanding and adoption of protection principles within key organizations and associations in the protection environment, such as relevant government departments, LGUs, armed forces, grass roots NGOs, and IDP communities. Specific measures to support the development of a child protection environment include the establishment of a common Family Tracing and Reunification (FTR) system, development of Community Based Protection Networks, training of Child Friendly Space Volunteers, Community Welfare volunteers and selected Youth Focal Points. Objective 2: To establish needs of returning IDP population and to strengthen community self reliance and livelihoods opportunities For the returns process, IDP profiling will be conducted to assess overall protection needs and concerns. Profiling will primarily be used to probe the context of concerned IDPs towards their most appropriate durable solution. Procedures will be initiated to provide civil status documentation (e.g. birth certificates) to IDPs whose documents were destroyed or lost during displacement. Provision of these documents will strengthen access to education, employment and landownership. To support strengthening of IDP communities, a series of IDP community rights forums will be held to highlight and address specific protection concerns in major areas of return. At return sites, livelihood projects will be implemented for durable solutions, based on participatory assessment and community self-management. Objective 3: To ensure the existence of protection mechanisms capable of providing support in a timely manner, through effective coordination, clear referral pathways, early warning and response and identification of vulnerable groups A toll-free reporting system will be established in key areas of concern so that IDP can access advice and assistance in times of need, and humanitarian agencies have access to information on incidents in the field. Calls will be fielded by a central agency, which will qualify and investigate calls through an extensive grass-roots NGO network, and direct them for assistance to an appropriate partner (such as police, Government agency, health or counselling facility, legal or social welfare agency). To facilitate this, a Referral Pathway will be developed within government structures and the humanitarian community. Mass information campaigns to promote awareness of the Protection Hotline will be conducted through local government, community structures and grass-roots NGOs. Objective 4: To ensure the provision of essential protection services in IDP sites and return areas to children, women and vulnerable groups GBV Specific Objectives A baseline assessment will be conducted in selected conflict affected areas particularly in IDP sites such as Evacuation Centers, relocations sites, resettlement sites and places of return. This assessment will determine the prevalence of GBV cases in these areas and serve as basis for the direction of GBV prevention and response interventions and serve as a mechanism to monitor the incidence of GBV. Existing appropriate alternative/indigenous community-based GBV prevention and response mechanisms will be identified, developed and implemented to ensure that context and culture- appropriate responses are in place. Capacity building of the key stakeholders in the prevention and management of GBV particularly social workers, the police, military, Muslim Religious Leaders, community leaders and the IDPs themselves will be done to ensure coordinated response to GBV cases and to ensure that all stakeholders are equipped with the necessary knowledge and skills to enable them to effectively respond to GBV cases. GBV protection measures will be advocated by the GBV Sub-Cluster for adoption by the various humanitarian clusters. Part of capacitating the various stakeholders will be the roll-out of the SOPs on GBV Prevention and Response that are being developed by the GBV Sub-Cluster. The implementation of the SOPs on GBV Prevention and Response by the various government and non-government agencies will pave the way for the institutionalization of the SOPs and its inclusion in the internal SOPs of the concerned agencies. Child Protection Specific Objectives The overall strategic objective for Child Protection is to sustain and promote the rights of girls and boys to protection from violence, abuse and exploitation.

77 Mindanao Humanitarian Action plan 2010 - 2011 Establishment and strengthening of anti-trafficking units throughout Mindanao covering major sea and airport access areas, including safe house environments, mobile units for community awareness trainings and forums in areas of conflict, and with communities facing extreme vulnerability is envisaged. Strengthening of legal and criminal systems for prosecution of those involved in human trafficking is also planned. The development of systems across conflict affected areas in Mindanao with government, NGO agencies and community to strengthen Family Tracing and Unification for Unaccompanied and Separated Children affected by the armed conflict is also planned, including the provision of support to children living and working on the streets and the deinstitutionalisation of children from government and NGO agency centres. A reintegration programme for children who have been identified in the rapid registration set by the Action Plan with the MILF will be set up. This programme shall also seek to establish basic services for children in these conflict affected communities. CFS will be organised in IDP and return sites, including isolated conflict areas. CFS will provide a venue for psycho-social activities for children, including assessment on children’s resilience and support, and strengthening of participating families, by skills and strategy development for children and families living in profound stress. The CFS also enables health and nutrition to be a vital component in children’s lives. Each CFS is supported by WFP and has “one healthy meal a day” for each child. An MRM system on grave child right violations (GCRV) will be established to report on, verify, and respond to cases of GCRV. A response system for reporting of UXO in conflict affected communities will be re-enforced through Mine Risk Education. Community and government members will be organised into community based protection networks, whose primary responsibility is to prevent and respond to protection issues for all vulnerable children and their families in areas of conflict, displacement and returning communities. A similar mechanism will be established for grave child rights violations. Inter-relations of needs with other Clusters Strong relationships and consultation exists between the closely interlinked Groups responsible for protection, child protection and SGBV, particularly while drafting the protection response plan. The two Sub-Clusters, for SGBV and Child Protection, provide updates to the Protection Cluster at its fortnightly meetings. Protection trainings to date were conducted as inter-agency collaborations, with the inclusion of protection, SGBV and Child Protection modules presented by the appropriate specialist agencies. In the returns process, protection concerns are also particularly integral to the CCCM and ER Clusters. Each of the three Cluster leads attends the Cluster meetings of the other two, and is in regular communication on the cross-cutting issues. The Protection Cluster also participated in the drafting of other sector’s response plans. For child protection, the provision of psycho-social support through the CFS will be coordinated with the Education Cluster which is also involved in psycho-social support through their TLS. The construction of CFS and temporary learning spaces will in turn be coordinated with the CCCM Cluster. Risk Analysis Protection The development of a protection environment in which protection principles are understood and applied is a process that needs consistent attention. Increased understanding and awareness of protection issues may not necessarily be followed by action based on those principles. This will need to be monitored and reinforced by the Protection Cluster in each communication and interaction with key actors.

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GBV Violence is the chief source of fear for displaced women and girls.27 The social disruption of displacement dismantles the social status of women and effectively returns them to subordination based on their physical vulnerability. Taking advantage of the weakest has long been a key strategy in conflict and in situations of displacement, women and girls become easy targets of aggression.28 Family separations increase the exposure of women and girls to GBV. Overcrowding in Evacuation Center leads to a lack of privacy for women and adolescent girls further create an enabling environment for abuse. Recurrent armed conflict has displaced entire communities and families, damaged infrastructure and traditional protection structures within the social fabric of Mindanao.29 While humanitarian efforts from various sectors continue to give assistance to the IDPs, there is a dearth of available information on the scale and scope of GBV in the Evacuation Centers and areas of return. The UNFPA rapid assessment (October 2009) of gender vulnerabilities in Evacuation Centers in Maguindanao and North Cotabato indicated that GBV is occurring and that displacement (often multiple) is a contributing factor to the existence of GBV throughout Mindanao. Child Protection The prolonged displacement and continued insecurity are causing severe stress to the families and the communities. Parents are increasingly unable to provide for their children because of loss of income and livelihood which may push children to enter even hazardous labour to augment family income. Parents because of rising frustration may vent their ire on their children. The lack of access to basic services like education would expose children to risks like trafficking and exploitation. The involvement of children in armed conflict is both direct and indirect, with children’s association with armed forces and groups tending to be influenced by community dynamics and social environment. However, children’s association with armed forces and groups is a matter of child rights; it should be sought at all times and is not contingent on a formal peace process. Although an escalation of conflict would present obstacles to monitoring, reporting and response, the UN-MILF Action Plan attends to preventative safeguards both through the MILF’s internal legislation to bring perpetrators to account, and through a systems based approach to reintegration at community level. Reintegration and support services provided within the framework of the MILF Action Plan will require a joint-UN and multi-agency approach based on an assessment of push factors and pull factors. The Child Protection Sub-Cluster is working closely with others on developing the most appropriate package. Existence of UXO and other explosive remnants of armed conflict continue to pose a threat to children even in the absence of open hostilities. Children are naturally curious to explore and tamper with such objects, while awareness of the risks is minimal even among adults. Reports of UXO on school premises and in areas frequented by children are received regularly. Indications are that the multi- dimensional armed conflict in Mindanao lends monetary value to UXO, which leads to stockpiling and re-sale by civilians, thus exacerbating the exposure of children to risk of injury and death. Child Trafficking has significantly increased, NGO partners clearly identify that children and young women are being trafficked out of their communities to both international and national destinations. UNICEF and partners have worked across areas of ARMM, Regions X, XI and XII in community education and prevention programmes. Families are being targeted by recruiters in areas of abject poverty and cyclic debt due to reoccurring displacement and where communities have limited exposure to the broader understanding of child trafficking.

27 Women’s Commission for Refugee Women and Children, 2001, The Gender Dimension of Internal Displacement, Concept Paper 28 Barry, J, 2005, Rising Up in Response, Women’s Rights Activism in Conflict, Urgent Action Fund 29 Rajendran, S. et. al, 2006

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Monitoring plan Protection Protection Cluster meetings will be the fora for discussions, planning and monitoring of all protection activities and for advocacy purposes. A quarterly monitoring system will be established to measure the implementation of objectives established and recommendations made by the Protection Cluster, including identifying gaps and planning suitable responses. SGBV The GBV Sub-Cluster in Mindanao meets monthly to share updates of SGBV cases. Assessment will be conducted quarterly at the SGBV Sub-Group level and reports will be consolidated annually. Additional inputs will be taken from IDP reports of teams and other organised groups at the community level, e.g. Inter-Agency Committee for Anti-Trafficking (IACAT) against Women and Children. Quick Response Team (QRT) will report regularly to the SGBV Sub-Group. QRT performance will be assessed bi-annually based on the targets set. Child Protection The Child Protection Sub-Cluster in Central Mindanao convenes every month, with ongoing issue monitoring by the Group Lead. Outcome measurement will be done at the end of the year and will be contracted through an institutional evaluator. The CPWG and at the national level, together with an evaluation consultant, shall design the outcome measurement scheme. A panel composed of representatives of MILF and UNICEF has been convened to oversee the implementation of the Action Plan. Plan International provides technical assistance to the panels in validating the process and results of the rapid registration. A team from UNICEF has also been created to document, monitor, verify and refer cases of grave child rights violations committed in situations of conflict. These are part of the requirements prescribed by the UN Security Council regarding the MRM.

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Summary table Strategic Objective 1: To support the Government to address humanitarian needs of affected population in a timely manner Linked Cluster objectives Indicators Target Groups Monitoring method and frequency 1. To ensure the development of Protection Cluster Strategy developed and implemented • Protection Cluster • Regular PWG meetings a protection environment in and key IDP policy and advocacy issues addressed. • Government partners • Correspondence with government which protection principles are Number of information, advocacy and training sessions • 6 provincial LGUs • Feedback from organizations, recognised and applied in all completed on protection principles/practice, mental & humanitarian responses. • 5 municipal LGUs in each of the 6 trainers and participants involved in psycho-social health, mine-risk education, child conflict-affected provinces protection training protection, MRM, TOTs, child trafficking, and other areas. • Security Forces (6th ID) • CCCM meeting minutes • Philippine National Police • Surveys, interviews and focus • IDP populations in ECs, return, group discussions resettlement sites • Community Based Child Protection Networks • Government Departments (Education & Health, DSWD) • IDP Children & families • NGOs • Religious leaders • Health & legal service providers 2. To establish needs of • % of IDP protection needs identified (disaggregated • IDP populations & host communities • Profiling statistics & reports returning IDP population and to gender, age, vulnerable groups) in 3 provinces • Civil registration reports and strengthen community self • Number of IDP civil status documents issued • DSWD, OPAPP statistics reliance and livelihoods opportunities • Number of mobilized communities participating in • Project reports & statistics assessment & conduct of livelihood activities Strategic Objective 4: To establish structures and mechanisms to ensure the protection of vulnerable individuals and groups. 3. To ensure the existence of • No. of IDPs returned/resettled/reintegrated in line with • IDP populations • Field monitoring reports protection mechanisms capable basic principles of return (voluntariness, dignity, • LGUs & Government agencies • Security reports of providing support in a timely safety, non-discrimination, full IDP participation) • Implementing Partners • Assessment reports manner, through effective coordination, clear referral • No. or areas where Protection Hotline, early warning, • Referral pathway partners • Referral pathway reports and pathways, early warning, and and response mechanisms established and functional. • IDP and host populations conflict- statistics response and identification of • Number of calls taken & percentage of referrals. affected provinces vulnerable groups.

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4. To ensure the provision of No. of communities/areas where 24/7 hotline for SGBV • Service providers (social workers, • Cluster and agency reports essential protection services in cases is established and functional Government organizations; NGOs) • DSWD records/reports IDP sites and return areas to all with at least minimal skills • Confidential Client List, Treatment children, women and other Affected population vulnerable groups • Records and Monthly Reports of QRT Community feedback No. or communities/areas where a Quick Response Team • IDP Multi-sector Team • Cluster and agency reports (QRT) for SGBV cases is available and functional • Community level groups • DSWD records/reports • IACAT • Confidential Client List, Treatment Records and Monthly Reports of the QRT • Community feedback No. of communities/areas where health service providers • Quick Response Teams for • Cluster and agency reports are available 24/7 neighbouring communities • DSWD records/reports (including at least 1 psychologist • Confidential Client List, Treatment and 1 medical doctor dedicated to Records and Monthly Reports of SGBV cases) QRT • Communities • Community feedback % of all QRTs with access to minimum supplies and • Quick Response Teams for • Cluster and agency reports equipment (e.g. Post-Rape Kits) neighbouring communities • DSWD records/reports (including at least 1 psychologist • Confidential Client List, Treatment and 1 medical doctor dedicated to Records and Monthly Reports of SGBV cases) the QRT • Communities • Community feedback % of reported SGBV cases served. • SGBV survivors • Reconcile with health Group • Service providers (social workers, • Service provider reports Government organizations; NGOs) with at least minimal skills • Affected population

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CHILD PROTECTIONStrategic Objective 1: To support the Government to address the humanitarian needs of affected populations in a timely manner. Linked Cluster Objectives Indicator Target Monitoring Methods To prevent and address the • No. of separated and unaccompanied children • All separated and unaccompanied • Minutes of meetings separation of children and the identified and provided family-based care children in the affected areas are • Reports of Government concerned promotion of family-based care • Common FTR system in place identified and provided with family- agencies based care • Reports of NGOs • Field reports To provide psycho-social support • No. of child-friendly spaces established in • 80% of displaced and vulnerable • Minutes of meetings to children and their caregivers displacement and return sites children have access to psycho- • Reports of Government concerned • No. Of Youth and Children’s clubs established social support activities e.g.: CFS, agencies • No. of child protection programmes that have Youth and Children’s Clubs etc. • Reports of NGOs integrated psycho-social in their work, in line with the • 100% of child protection • Field reports IASC MHPSS Guidelines programmes in affected areas have integrated psycho-social in their work, in line with the IASC MHPSS Guidelines Strategic Objective 2: To establish an enabling environment for the implementation of durable solutions for affected populations. To establish a mechanism to • % of reported cases of grave child rights violations in • All cases of grave child rights • Minutes of meetings systematically monitor and report situations of conflict verified and responded to violations in situations of conflict in • Reports of Government concerned and trigger response to grave • A system of MRM on GCRV is established the 6 provinces are reported and agencies rights violations and protection • No. of periodic reports produced responded to • Reports of NGOs concerns of children and women • Field reports To prevent and address the • A programme for reintegration of children associated • Reintegration programme in place • Minutes of meetings recruitment and use as well as with armed forces and armed groups (CAAFAGs) is in for CAAFAGs • Reports of Government concerned the arbitrary arrest and detention place • 100% of verified cases of agencies of children • % of reported cases of recruitment and use and recruitment and use and arbitrary • Reports of NGOs arbitrary arrest and detention verified are responded arrest and detention are responded • Field reports to. to. • To raise awareness and respond • No. of community members reached with MRE • 80% of affected communities • Reports from community meetings to incidence of UXO and other messages reached with MRE messages • No of materials produced and indiscriminate and illicit weapons • No. of children reached with MRE messages • System of response in place disseminated • Reports of NGOs • Field reports

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Strategic Objective 3: To develop the capacities of local Government and communities to respond to emergencies and manage their early recovery. Strategic Objective 4: To establish structures and mechanisms to ensure the protection of vulnerable individuals and groups. To establish community based • No of Community Based Child Protection Networks • 80% of affected communities have • Reports from community meetings child protection systems in established community based child protection • No of training sessions with affected areas • No of Community Welfare Volunteers chosen and systems established community members trained • Reports of NGOs • Youth Focal Points chosen and trained • Field reports To establish with Government • Child protection working group (CPWG) for the • A CPWG to cover the 6 areas is • Minutes of inter-agency meetings effective leadership on child affected areas organised and functional organised • Reports of Government concerned protection Group area of • No of CPWG held agencies responsibility with links to other • Reports of NGOs Cluster /sector mechanism on critical inter-sectoral issues To build the capacities of LGUs • LGUs able to provide child protection response • All provincial and municipal LGUs • Minutes of inter-agency meetings and communities to provide child during emergencies are trained and able to provide • Reports of Government concerned protection response during • services on Child protection in agencies emergencies emergencies • Reports of NGOs • Field reports To prevent and address the • Affected communities organised and mobilised to • 80 per cent of displaced • Minutes of inter-agency meetings violence, exploitation and abuse prevent and address violence, exploitation and abuse communities are organised to • Reports of Government concerned of children and women, including of children and women, including GBV. prevent and address violence, agencies GBV. • provincial LGUs with mechanisms in place to respond exploitation and abuse of children • Reports of NGOs to the needs of survivors and women, including GBV. • Field reports • Mechanisms to respond to the needs of survivors are in place in the 6 provinces

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7.8 Water, Sanitation and Hygiene Water, Sanitation and Hygiene Cluster Response Plan: summary Government Lead Agency Department of Health (DoH) Cluster Lead Agency(s) UNICEF Implementing Agencies ASDSW, Save the Children, IOM, MYROi Number of Projects Three Cluster Objectives 1. To ensure those in IDP sites and in return areas have access to essential WASH services at levels that meet commonly agreed standards. 2. To build capacity of local government and communities to operate and maintain WASH facilities to ensure sustainability. Total Number of Beneficiaries 100,659 individuals Funds Requested $3,893,044 Funds requested per priority level Returnees: B-High $652,700 IDP/Host Communities: B-High $3,240,344 Contact Information Tim Grieve WASH specialist [email protected] Needs analysis The rapid assessment carried out in July 2010 covered a total of 23 sites, including 17 return areas, two critical Evacuation Centers and four relocation sites in two municipalities in North Cotabato and eight municipalities in Maguindanao.30 A large-scale need for WASH facilities and related interventions in return areas was validated, as most of the sites were disproportionately lacking in WASH facilities. In relocation sites and Evacuation Centers alike, the above assessment validated an earlier assessment that the IDPs’ places of origin were no better than the relocation sites or Evacuation Centers. In almost all cases, return areas had the least number and the poorest quality of water and sanitation facilities. Also, de-sludging has become a concern in these areas, after most of the facilities have been put up for more than a year. Similarly, the assessment identified inadequate access to safe water and poor sanitation facilities including lack of hand washing facilities in schools particularly in conflict-affected areas in Maguindanao and North Cotabato. Key findings of the joint assessment undertaken by Save the Children on School and Day-Care Centres in June 2010 showed that 61% of schools had access to working sanitation facilities and 58% of schools had access to water, a portion which was polluted. There is a lack of information regarding disease prevalence such as diarrhoea rates amongst IDPs. Moreover, IDPs lacked hygiene supplies such as soap and sanitary pads for women, putting the IDPs at risk of disease. Coupled with hygiene supplies, it is recommended that hygiene promotion is implemented in the communities and schools to change behaviour towards better hygiene practice.

Beneficiaries

Beneficiaries (individuals) Location Female Male Agency Children Total (adult) (adult) Maguindanao 28,844 17,422 15,776 62,041 IOM and UNICEF North Cotabato 11,647 10,338 9,632 31,618 South Cotabato Lanao del Sur 130 195 4,225 4,550 Save the Children Lanao del Norte 70 105 2,275 2,450 Total 40,691 28,060 31,908 100,659 Source: DSWD-ARMM & Save the Children Rapid Assessment in Lanao Provinces (November 2010)

30 Source: WASH1 Cluster Rapid Assessment: Current WASH Situation in Return Areas in Maguindanao and North Cotabato, 7 September 2010 / Version 3.0.

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Review of progress to date Over the past two years, the WASH Cluster has installed at least 265 hand-pumps, 906 latrines and 40 water tanks with 1,500 litre capacities within the Evacuation Centers. The Cluster has distributed at least 20,000 jerry cans (20 litres) to carry and store water along with hyposol bottles for water purification. The focus of ongoing WASH activities is support for returning IDPs in Maguindanao. In service of returnees, the Cluster has installed approximately 80 water points, 220 latrines and conducted more than 50 hygiene promotion sessions. Cluster objectives The Cluster has determined the following two objectives: Objective 1: To ensure those in IDP sites and in return areas have access to essential WASH services at levels that meet commonly agreed standards The priority of the WASH Cluster will be to construct both new and rehabilitate existing WASH infrastructure in Evacuation Centers and locations where IDPs tend to congregate when first displaced, such as markets, schools and health centres. The WASH Cluster aims to rehabilitate damaged water and sanitation facilities of communities hosting IDPs. In Evacuation Centers in less accessible areas, lacking even basic WASH facilities, the Cluster will provide temporary WASH facilities. There is a need to provide WASH items to IDPs, including hygiene kits, soap and other essential sanitary items. The WASH Cluster will also construct and rehabilitate WASH facilities in areas to which IDPs have returned. All interventions should be sustainable and shall seek to support peace-building initiatives as well as the resumption of livelihoods. Objective 2: To build capacity of local government and communities to operate and maintain WASH facilities to ensure sustainability The WASH Cluster will work in close collaboration with LGUs, aiming to build capacities to respond to future displacements. WASH infrastructure built by the Cluster will be of high quality, robust and should be capable of being operated and maintained by community organizations and the LGUs. All interventions should be sustainable and shall seek to support peace-building initiatives as well as the resumption of livelihoods. Both the institutional and individual capacity of the LGUs will be enhanced to prepare and respond to emergencies. WASH Cluster members will continue building capacities of camp coordination and management structures and ensure that they are properly linked to key government structures so that they can initiate and manage their own WASH activities (e.g. water quality testing) or problems that may arise. Guidelines and standards of quality will be developed and promoted. WASH interventions in this HAP will be aimed at targeting international Sphere standards on water supply and sanitation facilities. The Cluster will endeavour to mobilise communities and involve women and youth in its activities, raising the levels of awareness of hygiene, and training communities in the operation and maintenance of WASH facilities, aiming to ensure its sustainability. Particular attention will be given to low cost household water treatment systems. Currently, organizations are implementing WASH activities in the following geographical areas: Locations Organizations All areas UNICEF Lanao Del Sur Save the Children (under the UNICEF project (Munai, Tangkal, Tagoloan, Poona, Piagapo, Kolambugan, proposal) Maigo, Bacolod, Kauswagan) Lanao Del Norte (Piagapo, Madalum, Marawi City, Taraka, Kalunagas, Wato Balindong, Bayabao, Butig) North Cotabato MYROi (under the UNICEF project proposal) (Alamada,Pikit) Maguindanao (Talayan, Datu Saudi, Talitay, Guindulongan, Datu Salibo) Maguindanao ASDSW (under the UNICEF project proposal) North Cotabato Maguindanao and North Cotabato IOM South Cotabato Sultan Kudarat

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Inter-relations with other Clusters The WASH Cluster will work closely with the Health Cluster concerning health risks associated with contaminated water and the widespread of unregulated use of sanitation facilities, as well as low levels of awareness of hygiene on the part of affected people. In the event of an outbreak of a water- borne disease, the WASH and Health Clusters will collaborate concerning the provision of NFIs, arrangements for clean water and the provision of medical services. The WASH Cluster will work with the Food Security and Agriculture Cluster and the Nutrition Cluster concerning the reduction of malnutrition, for which the provision of clean drinking water is essential. Furthermore, the WASH Cluster will continue to depend on the CCCM Cluster for numbers and locations of IDPs and returnees. Risks Risks to the WASH Cluster response plan include restrictions on the movement of Cluster members owing to insecurity, especially as some beneficiary communities are located in remote areas and the road network is poorly developed. The Liguasan Marsh of Maguindanao and North Cotabato is a difficult location for WASH activities. The proximity of many communities to rivers and marshes renders them susceptible to flooding, a situation exacerbated by unpredictable weather and the potential for intense rainfall. The high water table makes it difficult to reach potable water and there are high risks of drawing water contaminated by high salinity or iron content. Even the presence of natural biogas poses a risk to borehole construction. Septic tanks built for sanitation facilities can easily be flooded or filled with seepage, also posing a contamination risk to potable water sources. A further challenge to the Cluster Response Plan is the low number of local contractors capable of drilling boreholes, constructing facilities and even de-sludging septic tanks to the quality required. Monitoring Plan Regular monthly WASH Cluster meeting are held to monitor the implementation of WASH activities. Sharing of information between WASH Cluster members is an important means by which the Cluster may monitor the status of projects. Regular field visits are made to ensure the project implementation is on track and meets the requisite standards. UNICEF will review and upgrade its progress monitoring matrix to tie in with the indicators and targets outlined in the summary table below on a regular basis, and will continue to use, enhance to harmonize with the bi-monthly regular humanitarian situational reports of OCHA and in-house report.

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Summary table Strategic Objective 1: To support the Government to address the humanitarian needs of affected populations in a timely manner. Linked Cluster objectives Indicators Target Monitoring method and frequency To ensure those in IDP sites and WASH-related disease outbreaks in the sites (e.g. Zero outbreaks • Cluster meetings in return areas have access to diarrhoea) • Humanitarian Situation Updates essential WASH services at • IDP reports levels that meet commonly agreed standards. • Feedback through CCCM Cluster meetings IDPs and returnees able to practice proper personal 80% of people in 50% of sites (IDP, • Humanitarian Situation Updates and household hygiene relocation, return and host) provided • IDP reports with WASH facilities • Feedback through CCCM Cluster meetings Level of satisfaction of IDPs regarding WASH 70% of IDP households covered • Surveys, assessments and monitoring visits services and NFI WASH facilities are functional (rehabilitated and 100% of hand-pumps • Monitoring visits maintained) 100% of latrines 100% of water storage systems Drinking water supplies meet commonly agreed 100% standards Strategic Objective 3: To develop the capacities of local government and communities to respond to emergencies and manage their early recovery. To build the capacity of local Number of training courses conducted At least 2 training courses in 10 LGUs • Health Status reports Government and communities to and 50 communities • WASH Cluster reports operate and maintain WASH Number of functional WASH committees 100% in 10 communities • Monitoring visits to communities facilities to ensure sustainability. Number of training courses on Water Quality 3 within at least 3 municipalities • Attendance records

monitoring and analysis provided to water service • Course materials providers. The inclusion of WASH infrastructure in the WASH included in at least 2 • Municipal development plans Municipal Development Plans, incorporating municipal development plans wastewater, sanitation treatment and management, and alternative water sources. Government leads WASH activities DoH leading WASH Cluster meetings • WASH Cluster reports and activities Joint response of Government and humanitarian At least one joint activity per month agencies to WASH needs

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ANNEXES

ANNEX A. LIST OF ORGANIZATIONS INVOLVED Organization Cluster Involvement United Nations Food and Agriculture Organization of the United Nations Agriculture, Early Recovery and Livelihood (FAO) United Nations Children’s Fund (UNICEF) Protection, WASH, Education, Early Recovery and Livelihood United Nations Development Programme (UNDP) Early Recovery and Livelihood United Nations High Commissioner for Refugees (UNHCR) Protection, CCCM, Early Recovery and Livelihood United Nations Office for Coordination of Humanitarian Humanitarian Coordination, Protection, Nutrition, Affairs (OCHA) Early Recovery and Livelihood United Nations Population Fund (UNFPA) Health, Protection World Food Programme (WFP) CCCM, Food, Protection, Agriculture, Early Recovery and Livelihood World Health Organization (WHO) Health, WASH International organizations International Organisation for Migration (IOM) CCCM, WASH, Protection, Early Recovery and Livelihood, Health International NGOs Action against Hunger-International (ACF) CCCM, Food, WASH, Nutrition, Protection Community and Family Services International (CFSI) CCCM, Food, Protection, Education Nonviolent Peaceforce Philippines (NPP) Protection Norwegian Refugee Council (NRC) CCCM, Protection Oxfam Philippines CCCM, WASH, Early Recovery and Livelihood, Protection Save the Children - Philippines Protection, Education, Nutrition, Early Recovery and Livelihood, WASH Local NGOs Central Mindanao Livelihood Assistance and Resource Education, Early Recovery and Livelihood Development Foundation (CEMILARDEF) Development Consultants (DEVCON) Kadtuntaya Foundation Inc. (KFI) Education, Protection Mindanao Human Rights Action Centre (MinHRAC) Protection Mindanao Tulong Bakwet (MTB) CCCM, WASH, Protection, Nutrition, Health, Education Muslim Youth Religious Organisations Incorporated Education, Early Recovery and Livelihood, (MYROi) Health, Nutrition, WASH United Youth of the Philippines (UnYPhil) United Youth for Peace and Development (UnYPAD) Mindanao Emergency Response Network (MERN) Nutrition Government Department of Agriculture - ARMM Agriculture Department of Agriculture - Region XII Agriculture Department of Agriculture and Fisheries (DAF) - ARMM Agriculture Department of Education (DepEd) – ARMM and Region XII Education Department of Health (DoH) - ARMM WASH, Health, Nutrition Department of Social Welfare and Development (DSWD) - CCCM, Food, Protection ARMM and Region XII National Nutrition Council - ARMM Nutrition National Economic Development Authority (NEDA) – Region XII Department of National Defense (DND) - Office of Civil Defense (OCD) – Region XII Regional Planning and Development Office (RPDO) - ARMM Technical Management Group (TMG) - ARMM Official Development Assistance (ODA) office – ARMM GRP Coordinating Committee for the Cessation of Hostilities (CCCH) Secretariat

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ANNEX B. LIST OF RESPONSE PLAN PROJECTS (grouped by location and cluster) The Cluster Response Plans and the project concepts in this annex were developed with consideration of established standards and norms of humanitarian best practice, such as: • Coherency to the overall strategic objectives • Congruence with established strategies, such as the ARMM Early Recovery Plan and PAMANA • Defined activities that directly or indirectly benefit the target population • With due consideration of the ‘do no harm’ principle, particular with reference to peace-building and the ongoing GRP/MILF peace process. • Consideration of gender issues • Value for money and feasibility • Building community resilience, including disaster-risk reduction It is anticipated that such themes will continue to guide project design and prioritisation as implementation of the HAP progresses.

Region: Autonomous Region of Muslim Mindanao (ARMM) Province: Maguindanao Cluster/Sector: WASH Appealing Agency / Project Code Project Title Main Activities Budget (US$) Organization IOM PHI-11/WS/33959 WASH support to vulnerable IDP • Construction of WASH facilities in return areas 1,240,344 families in the return sites in • Health & hygiene promotion Central Mindanao • Training of site management committees • Integration of site management committees with the local structures Save the Children PHI-11/WS/33982 WASH assistance in schools for • Construction of school toilet facility and handwashing facility 652,700 conflict affected communities • Construction of water points • Distribution of hygiene kits • Hygiene and sanitation promotion • Training for teachers, parents and local school boards UNICEF PHI-11/WS/34180 WASH response to IDPs • Provision of safe water facilities t schools, CFS, ECs, and return areas 2,000,000 affected by conflict in Mindanao • Construction of sanitation facilities with washing facilities • Distribution of WASH hygiene kits & educational materials • CB on water quality monitoring • Distribution of water test kits • Trainings

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Region: Autonomous Region of Muslim Mindanao (ARMM) Province: Maguindanao Cluster/Sector: Health IOM PHI-11/H/33960 Health assistance to the IDPs • Refurbishment of health centres, health posts in return sites 704,646 and return families in the conflict • Training of BHWs affected provinces in Mindanao • Provision of basic health kits MYROi PHI-11/H/34006 Support the provision of health • Construction and rehabilitation of health units 261,055 services in selected barangays • Creation of CB Mobile health referral teams in Maguindanao • Training of CHVs • Provision of basic delivery equipment MTB PHI-11/H/33909 Advancing optimum health • Mobile clinic 307,912 through provision of holistic • Immunization, Vitamin A supplementation essential health services among • Heath promotion IDPs and/in return areas (25,000 • First aid trainings IDPs in Datu Piang, Datu Salibo, DAM, DOS, DSA) WHO PHI-11/H/36400 Ensuring access for essential • Provision of essential medicines, supplies and equipment for health 819,192 health care for IDPs in Mindanao facilities • Manpower support • Review and support strengthen health system UNFPA PHI-11/H/33995 Promoting Reproductive Health • Mobile clinic equipped with medical staff, medicines and supplies 461,610 and Saving the Lives of IDP • RH information during WFPs micronutrient supplementation feeding Women, Adolescents and Men in activities Mindanao IDP Camps and • Distribute RH kits and hygiene kits Return Areas • Procure ambulance to transport women with complications • Capacitate RH working group in DRR • Sustain Multi-sector Teams, plus two teams • IEC activities Cluster/Sector: CCCM IOM PHI-11/S-NF/33961 Assisting sustainable IDP return • Procurement of shelter repair materials 984,905 in communities of Central • Provision of livelihood support Mindanao • Implementation of facilities upgrade • DRR awareness IOM PHI-11/CSS/33962 Strengthening IM mechanisms • Deployment of IDP mobile 1,355,995 for coordinated life saving • Information sharing with humanitarian community response to conflict affected areas in Mindanao UNHCR PHI-11/S-NF/33925 Basic needs and essential • Provision of unmet shelter needs 2,094,800 services • Provision of NFIs • Facilitate CCCM workshops on camp management standards

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Region: Autonomous Region of Muslim Mindanao (ARMM) Province: Maguindanao Cluster/Sector: Nutrition Save the Children PHI-11/H/33985 Protecting and promoting • Case finding 450,000 nutrition of children in selected • Provision of nutritious food items municipalities affected by armed • Provision of seeds and gardening tools conflict • Training UNICEF PHI-11/H/34004 Ensuring the nutrition support for • Surveillance 1,214,000 children and families in selected • CMAM municipalities affected by • Nutrition services emergencies Cluster/Sector: Protection UNHCR PHI-11/P/HR- Assistance to IDPs in Mindanao • Development & implementation of Protection Cluster strategy 1,899,347 RL/33920 • Training on protection principles • Documentation through TA on national registration • Technical support, including communication, livelihood materials • Monitoring and Implementation of QIPs UNICEF PHI-11/P/HR- Protecting children affected • Strengthening social welfare systems through CB and community 1,700,000 RL/34187 within the emergency context of systems building Mindanao • Psycho-social support activities on CFS, youth and children’s clubs, awareness raising on child protection UNICEF PHI-11/P/HR- Protecting children affected by • Community-based child protection systems 1,000,000 RL/34191 conflict including those • Psycho-social support activities associated with armed forces • Create CPU throughout MILF and groups • Register and verify children that may be associated with armed groups • Roll out Mine Risk education UNICEF PHI-11/P/HR- Preventing and trafficking of • CB for Protection Cluster members on trafficking 300,000 RL/34192 women and children • Creation of anti-trafficking law enforcement task forces • Support to victims MinHRAC PHI-11/P/HR- Emergency assistance and • Set-up MinHRAC action centres (MAC) for protection and human 291,557 RL/36179 referral centre for civilians in rights assistance CAAs in Mindanao • Database and documentation • Publish training and advocacy materials • Engage in institutional expansion UNFPA PHI-11/P/HR- Addressing Gender-Based • Establish 24/7 GBV hotline 346,800 RL/33997 Violence (GBV) among the IDPs • Provision of immediate medical care in Mindanao • Roll out information on SOP prevention and management

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Cluster/Sector: Education UNICEF PHI-11/E/ 34020 Ensuring continuation of basic • Construction of TLCs 2,828,150 education of children in-school • Construction of children’s learning packs and out-of-school in • Provision of library sets conflict/disaster-affected • Deployment of para-teachers and volunteers communities in Mindanao • CB on DRR, EiE • Training for PTAs, teachers &volunteers • ECCD Cluster/Sector: Early Recovery UNDP PHI-11/ER/34153 Strengthening social cohesion in • Training on DRRM 207,200 46 IDP return sites in ARMM • Facilitate formulation of DRRM plans through DRRM councils • Training of DRRM councils on conflict management and disaster preparedness, and early warning UNDP PHI-11/ER/34150 Support to Early Recovery • Form ER project teams 868,750 Needs of 46 Return Sites in • Conduct participatory barangay planning ARMM • Conduct management and technology CB to project management groups Cluster/Sector: Food and Agriculture FAO PHI-11/A/34016 Emergency Response to • Formation of farmers, fisherfolks and women for matching 2,141,675 Restoring Rural Livelihoods in contributions Conflict-Affected Areas of • Distribution of farm inputs Mindanao • Technical support to DA/DAF WFP PHI-11/F/34038 Assistance to IDPs, and • Food assistance to the most vulnerable 9,800,000 Returnees in Conflict-affected • Restoring lives and livelihoods of returnees Areas of Central Mindanao • Supplementary feeding • Food for Work & Food for Training Province: Lanao Del Sur Cluster/Sector: WASH Save the Children PHI-11/WS/33982 WASH assistance in schools for • Construction of school toilet facility and hand washing facility 652,700 conflict affected communities • Construction of water points • Distribution of hygiene kits • Hygiene and sanitation promotion • Training for teachers, parents and local school boards

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UNICEF PHI-11/WS/34180 WASH response to IDPs • Provision of safe water facilities t schools, CFS, ECs, and return areas 2,000,000 affected by conflict in Mindanao • Construction of sanitation facilities with washing facilities • Distribution of WASH hygiene kits & educ. Materials • CB on water quality monitoring • Distribution of water test kits • Trainings Cluster/Sector: Nutrition UNICEF PHI-11/H/34004 Ensuring the nutrition support for • Surveillance 1,214,000 children and families in selected • CMAM municipalities affected by • Nutrition services emergencies Save the Children PHI-11/H/33986 Protecting and promoting • Case finding 350,000 nutrition of children in selected • Provision of nutritious food items municipalities affected by armed • Provision of seeds and gardening tools conflict (3 municipalities) • Training Cluster/Sector: Education UNICEF PHI-11/E/34020 Ensuring continuation of basic • Construction of TLCs 2,828,150 education of children in-school • Construction of children’s learning packs and out-of-school in • Provision of library sets conflict/disaster-affected • Deployment of para-teachers and volunteers communities. • CB on DRR, EiE • Training for PTAs, teachers &volunteers • ECCD Cluster/Sector: Protection UNHCR PHI-11/P/HR- Assistance to IDPs in Mindanao • Development & implementation of Protection Cluster strategy 1,899,347 RL/33920 • Training on protection principles • Documentation through TA on national registration • Technical support, including communication, livelihood materials • Monitoring and Implementation of QIPs MinHRAC PHI-11/P/HR- Emergency assistance and • Set-up MinHRAC action centres (MAC) for protection and human 291,557 RL/36179 referral centre for civilians in rights assistance CAAs in Mindanao • Database and documentation • Publish training and advocacy materials • Engage in institutional expansion UNICEF PHI-11/P/HR- Protecting children affected by • Community-based child protection systems 1,000,000 RL/34191 conflict including those • Psycho-social support activities associated with armed forces • Create CPU throughout MILF and groups • Register and verify children that may be associated with armed groups • Roll out Mine Risk education

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UNFPA PHI-11/P/HR- Addressing Gender-Based • Establish 24/7 GBV hotline 346,800 RL/33997 Violence (GBV) among the IDPs • Provision of immediate medical care in Mindanao • Roll out information on SOP prevention and management Cluster/Sector: CCCM UNHCR PHI-11/P/S-NF/33925 Basic needs and essential • Provision of unmet shelter needs 2,094,800 services • Provision of NFIs • Facilitate CCCM workshops on camp management standards

Region: Autonomous Region of Muslim Mindanao (ARMM) Province: Maguindanao Cluster/Sector: Health UNFPA PHI-11/H/33995 Promoting Reproductive Health • Mobile clinic equipped with medical staff, medicines and supplies 461,610 and Saving the Lives of IDP • RH information during WFPs micronutrient supplementation feeding Women, Adolescents and Men in activities Mindanao IDP Camps and • Distribute RH kits and hygiene kits Return Areas • Procure ambulance to transport women with complications • Capacitate RH working group in DRR • Sustain Multi-sector Teams, plus two teams • IEC activities Cluster/Sector: Food and Agriculture WFP PHI-11/F/34038 Assistance to IDPs, and • Food assistance to the most vulnerable 9,800,000 Returnees in Conflict-affected • Restoring lives and livelihoods of returnees Areas of Central Mindanao • Supplementary feeding • Food for Work & Food for Training

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Region: Northern Mindanao (Region X) Province: Lanao Del Norte Cluster/Sector: WASH Appealing Agency / Project Code Project Title Main Activities Budget (US$) Organization Save the Children PHI-11/WS/33982 WASH assistance in schools for • Construction of school toilet facility and handwashing 652,700 conflict affected communities facility • Construction of water points • Distribution of hygiene kits • Hygiene and sanitation promotion • Training for teachers, parents and local school boards UNICEF PHI-11/WS/34180 WASH response to IDPs • Provision of safe water facilities t schools, CFS, ECs, and 2,000,000 affected by conflict in Mindanao return areas • Construction of sanitation facilities with washing facilities • Distribution of WASH hygiene kits & educ. materials • CB on water quality monitoring • Distribution of water test kits • Trainings Cluster/Sector: Nutrition UNICEF PHI-11/H/34004 Ensuring the nutrition support for • Surveillance 1,214,000 children and families in selected • CMAM municipalities affected by • Nutrition services emergencies Save the Children PHI-11/H/33986 Protecting and promoting • Case finding 350,000 nutrition of children in selected • Provision of nutritious food items municipalities in Lanao del Norte • Provision of seeds and gardening tools • Training Cluster/Sector: Protection UNHCR PHI-11/P-HR- Assistance to IDPs in Mindanao • Development & implementation of Protection Cluster 1,899,347 RL/33920 strategy • Training on protection principles • Documentation through TA on national registration • Technical support, including communication, livelihood materials • Monitoring and Implementation of QIPs MinHRAC PHI-11/P-HR- Emergency assistance and • Set-up MinHRAC action centres (MAC) for protection and 291,557 RL/36179 referral centre for civilians in human rights assistance CAAs in Mindanao • Database and documentation • Publish training and advocacy materials • Engage in institutional expansion

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Region: Northern Mindanao (Region X) Province: Lanao Del Norte UNICEF PHI-11/P-HR- Protecting children affected by • Community-based child protection systems 1,000,000 RL/34191 conflict including those • Psycho-social support activities associated with armed forces • Create CPU throughout MILF and groups • Register and verify children that may be associated with armed groups • Roll out Mine Risk education Cluster/Sector: CCCM UNHCR PHI-11/S-NF/33925 Basic needs and essential • Provision of unmet shelter needs 2,094,800 services • Provision of NFIs • Facilitate CCCM workshops on camp management standards Cluster/Sector: Education UNICEF PHI-11/E/34020 Ensuring continuation of basic • Construction of TLCs 2,828,150 education of children in-school • Construction of children’s learning packs and out-of-school in • Provision of library sets conflict/disaster-affected • Deployment of para-teachers and volunteers communities. • CB on DRR, EiE • Training for PTAs, teachers &volunteers • ECCD Cluster/Sector: Food and Agriculture WFP PHI-11/F/34038 Assistance to IDPs, and • Food assistance to the most vulnerable 9,800,000 Returnees in Conflict-affected • Restoring lives and livelihoods of returnees Areas of Central Mindanao • Supplementary feeding • Food for Work & Food for Training

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Region: SOCCSKSARGEN (Region XII) Province: North Cotabato Cluster/Sector: WASH Appealing Agency / Project Code Project Title Main Activities Budget (US$) Organization IOM PHI-11/WS/33959 WASH Support to Vulnerable • Construction of WASH facilities in return areas 1,240,344 IDP Families in the Return Sites • Health & hygiene promotion in Central Mindanao • Training of site management committees • Integration of site management committees with the local structures UNICEF PHI-11/WS/34180 WASH response to IDPs • Provision of safe water facilities t schools, CFS, ECs, and return 2,000,000 affected by conflict in Mindanao areas. • Construction of sanitation facilities with washing facilities • Distribution of WASH hygiene kits & educ. materials • CB on water quality monitoring • Distribution of water test kits • Trainings Cluster/Sector: Health IOM PHI-11/H/33960 Ensure the provision of essential • Refurbishment of health centres, health posts in return sites 704,646 public health services in IDP • Training of BHWs sites and return areas • Provision of basic health kits MYROi PHI-11/H/34006 Support the provision of health • Construction and rehabilitation of health units 261,055 services in selected barangays • Creation of CB Mobile health referral teams in North Cotabato • Training of CHVs • Provision of basic delivery equipment WHO PHI-11/H/36400 Ensuring access for essential • Provision of essential medicines, supplies and equipment for 819,192 health care for IDPs in Mindanao health facilities • Manpower support • Review and support strengthen health system UNFPA PHI-11/H/33995 Promoting Reproductive Health • Mobile clinic equipped with medical staff, medicines and 461,610 and Saving the Lives of IDP supplies Women, Adolescents and Men in • RH information during WFPs micronutrient supplementation Mindanao IDP Camps and feeding activities Return Areas • Distribute RH kits and hygiene kits • Procure ambulance to transport women with complications • Capacitate RH working group in DRR • Sustain Multi-sector Teams, plus two teams • IEC activities

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Cluster/Sector: CCCM IOM PHI-11/CSS/33962 Strengthening IM mechanisms • Deployment of IDP mobile 1,355,995 for coordinated life saving • Information sharing with humanitarian community response to conflict affected areas in Mindanao UNHCR PHI-11/S-NF/33925 Basic needs and essential • Provision of unmet shelter needs 2,094,800 services • Provision of NFIs • Facilitate CCCM workshops on camp management standards Cluster/Sector: Nutrition UNICEF PHI-11/H/34004 Ensuring the nutrition support for • Surveillance 1,214,000 children and families in selected • CMAM municipalities affected by • Nutrition services emergencies Save the Children PHI-11/H/33985 Protecting and promoting • Case finding 450,000 nutrition of children in selected • Provision of nutritious food items municipalities affected by armed • Provision of seeds and gardening tools conflict • Training Cluster/Sector: Education UNICEF PHI-11/E/34020 Ensuring continuation of basic • Construction of TLCs 2,828,150 education of children in-school • Construction of children’s learning packs and out-of-school in • Provision of library sets conflict/disaster-affected • Deployment of para-teachers and volunteers communities. • CB on DRR, EiE • Training for PTAs, teachers &volunteers • ECCD Cluster/Sector: Protection UNHCR PHI-11/P-HR- Assistance to IDPs in Mindanao • Development & implementation of Protection Cluster strategy 1,899,347 RL/33920 • Training on protection principles • Documentation through TA on national registration • Technical support, including communication, livelihood materials • Monitoring and Implementation of QIPs UNICEF PHI-11/P-HR- Protecting children affected by • Community-based child protection systems 1,000,000 RL/34191 conflict including those • Psycho-social support activities associated with armed forces • Create CPU throughout MILF and groups • Register and verify children that may be associated with armed groups • Roll out Mine Risk education

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UNICEF PHI-11/P/HR- Protecting children affected • Strengthening social welfare systems through CB and 1,700,000 RL/34187 within the emergency context of community systems building Mindanao • Psycho-social support activities on CFS, youth and children’s clubs, awareness raising on child protection UNICEF PHI-11/P-HR- Preventing and trafficking of • CB for Protection Cluster members on trafficking 300,000 RL/34192 women and children • Creation of anti-trafficking law enforcement task forces • Support to victims MinHRAC PHI-11/P-HR- Emergency assistance and • Set-up MinHRAC action centres (MAC) for protection and 291,557 RL/36179 referral centre for civilians in human rights assistance CAAs in Mindanao • Database and documentation • Publish training and advocacy materials • Engage in institutional expansion UNFPA PHI-11/P-HR- Addressing Gender-Based • Establish 24/7 GBV hotline 346,800 RL/33997 Violence (GBV) among the IDPs • Provision of immediate medical care in Mindanao • Roll out information on SOP prevention and management Cluster/Sector: Food and Agriculture FAO PHI-11/A/34016 Emergency Response to • Formation of farmers, fisherfolks and women for matching 2,141,675 Restoring Rural Livelihoods in contributions Conflict-Affected Areas of • Distribution of farm inputs Mindanao • Technical support to DA/DAF WFP PHI-11/F/34038 Assistance to IDPs, and • Food assistance to the most vulnerable 9,800,000 Returnees in Conflict-affected • Restoring lives and livelihoods of returnees Areas of Central Mindanao • Supplementary feeding • Food for Work & Food for Training Province: South Cotabato Cluster/Sector: Protection UNHCR PHI-11/P-HR- Assistance to IDPs in Mindanao • Development & Implementation of Protection Cluster strategy 1,899,347 RL/33920 • Training on protection principles • Documentation through TA on national registration • Technical support, including communication, livelihood materials • Monitoring and Implementation of QIPs MinHRAC PHI-11/P-HR- Emergency assistance and • Set-up MinHRAC action centres (MAC) for protection and 291,557 RL/36179 referral centre for civilians in human rights assistance CAAs in Mindanao • Database and documentation • Publish training and advocacy materials • Engage in institutional expansion

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UNICEF PHI-11/P-HR- Protecting children affected by • Community-based child protection systems 1,000,000 RL/34191 conflict including those • Psycho-social support activities associated with armed forces • Create CPU throughout MILF and groups • Register and verify children that may be associated with armed groups • Roll out Mine Risk education Cluster/Sector: CCCM UNHCR PHI-11/S-NF/33925 Basic needs and essential • Provision of unmet shelter needs 2,094,800 services • Provision of NFIs • Facilitate CCCM workshops on camp management standards Cluster/Sector: Food and Agriculture WFP PHI-11/F/34038 Assistance to IDPs, and • Food assistance to the most vulnerable 9,800,000 Returnees in Conflict-affected • Restoring lives and livelihoods of returnees Areas of Central Mindanao • Supplementary feeding • Food for Work & Food for Training Province: Sultan Kudarat Cluster/Sector: WASH IOM PHI-11/WS/33959 WASH Support to Vulnerable • Construction of WASH facilities in return areas 1,240,344 IDP Families in the Return Sites • Health & hygiene promotion in Central Mindanao • Training of site management committees • Integration of site management committees with the local structures Cluster/Sector: Health IOM PHI-11/H/33960 Health assistance to the IDPs • Refurbishment of health centres, health posts in return sites 704,646 and return families in the conflict • Training of BHWs affected provinces in Mindanao • Provision of basic health kits UNFPA PHI-11/H/33995 Promoting Reproductive Health • Mobile clinic equipped with medical staff, medicines and 461,610 and Saving the Lives of IDP supplies Women, Adolescents and Men in • RH information during WFPs micronutrient supplementation Mindanao IDP Camps and feeding activities Return Areas • Distribute RH kits and hygiene kits • Procure ambulance to transport women with complications • Capacitate RH working group in DRR • Sustain Multi-sector Teams, plus two teams • IEC activities Cluster/Sector: CCCM UNHCR PHI-11/S-NF/33925 Basic needs and essential • Provision of unmet shelter needs 2,094,800 services • Provision of NFIs • Facilitate CCCM workshops on camp management standards

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Cluster/Sector: Protection UNHCR PHI-11/P-HR- Assistance to IDPs in Mindanao • Development & implementation of Protection Cluster strategy 1,899,347 RL/33920 • Training on protection principles • Documentation through TA on national registration • Technical support, including communication, livelihood materials • Monitoring and Implementation of QIPs MinHRAC PHI-11/P-HR- Emergency assistance and • Set-up MinHRAC action centres (MAC) for protection and 291,557 RL/36179 referral centre for civilians in human rights assistance CAAs in Mindanao • Database and documentation • Publish training and advocacy materials • Engage in institutional expansion UNICEF PHI-11/P-HR- Protecting children affected by • Community-based child protection systems 1,000,000 RL/34191 conflict including those • Psycho-social support activities associated with armed forces • Create CPU throughout MILF and groups • Register and verify children that may be associated with armed groups • Roll out Mine Risk education UNFPA PHI-11/P-HR- Addressing Gender-Based • Establish 24/7 GBV hotline 346,800 RL/33997 Violence (GBV) among the IDPs • Provision of immediate medical care in Mindanao • Roll out information on SOP prevention and management Cluster/Sector: Education UNICEF PHI-11/E/34020 Ensuring continuation of basic • Construction of TLCs 2,828,150 education of children in-school • Construction of children’s learning packs and out-of-school in • Provision of library sets conflict/disaster-affected • Deployment of para-teachers and volunteers communities. • CB on DRR, EiE • Training for PTAs, teachers &volunteers • ECCD Cluster/Sector: Food and Agriculture FAO PHI-11/A/34016 Emergency Response to • Formation of farmers, fisherfolks and women for matching 2,141,675 Restoring Rural Livelihoods in contributions Conflict-Affected Areas of • Distribution of farm inputs Mindanao • Technical support to DA/DAF WFP PHI-11/F/34038 Assistance to IDPs, and • Food assistance to the most vulnerable 9,800,000 Returnees in Conflict-affected • Restoring lives and livelihoods of returnee supplementary Areas of Central Mindanao feeding • Food for Work & Food for Training

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Region: All Province: All Cluster/Sector: Coordination Appealing Agency / Project Code Project Title Main Activities Budget (US$) Organization OCHA PHI-11/CSS/41154 Humanitarian coordination and • Improving humanitarian coordination 246,888 advocacy in Mindanao • Continued reporting, monitoring and analysis of the humanitarian situation; • Support to the Humanitarian Coordinator and the Humanitarian County Team for timely decision making on strategic, policy and operational issues; • HAP monitoring and review at mid and end of the year based on agreed benchmarks and indicators; • Improving linkages between humanitarian and recovery / development programs.

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Chart 1: Percentage share of number of Chart 2: Percentage share of total budget projects by province requirements by province

Sultan Kudarat Sultan Kudarat Maguindanao 14% Maguindanao 14% 29% South Cotabato 0%0%0% 30% 7% South Cotabato 7% 0%0%0%0%0%0%0% North Cotabato 23% 0%0%0%0%0%0%0%0% 23% 15% 13%Lanao Del Sur 13% Lanao Del Sur North Cotabato 0%0%0%0%0%0% 13% 0%0%0%0%0%0%0% Lanao Del Norte Lanao Del Norte

104 Mindanao Humanitarian Action plan 2010 - 2011

Chart 3: Percentage share of requirements Chart 4: Percentage share of requirements by by cluster WASH CCCM COORDINATION appealing agency 11% 13% 1% EARLY WHO FAO 2% 6% IOM RECOVERY 12% 3% MinHRAC PROTECTION, 1% INCLUDING MTB CHILD 1% MYROi PROTECTION EDUCATION WFP 1% AND SGBV 29% 8% OCHA 16% 1% SC 4%

UNDP NUTRITION 3% 6% UNFPA 2% HEALTH 7% FOOD AND AGRICULTURE UNHCR 35% 12% UNICEF 26%

105 Mindanao Humanitarian Action plan 2010 - 2011

ANNEX C. ACRONYMS AND ABBREVIATIONS ACF Action Contre la Faim ADLM Alternative Delivery Learning Mode AFP Armed Forces of the Philippines ARMM Autonomous Region in Muslim Mindanao ASDSW A Single Drop of Safe Water

BEMoNC basic emergency obstetric and neonatal care BHS Barangay Health Station BHW Barangay Health Worker BIAF Bangsamoro Islamic Armed Forces

CAAFG children associated with armed forces and groups CCCM camp coordination and camp management CEDAW Convention on the Elimination of All Forms of Discrimination against Women CEMoNC comprehensive emergency obstetric and neonatal care CERF Central Emergency Response Fund CFS child-friendly space CFSI Community and Family Services International CHV community health volunteer CMAM community-based management of acute malnutrition CPWG Child Protection Working Group

DA Department of Agriculture DAF Department of Agriculture and Fisheries DAFAC Disaster Assistance Family Access Card DepEd Department of Education DILG Department of the Interior and Local Government DoH Department of Health DOST Department of Science and Technology DPWH Department of Public Works and Highways DROMIC Disaster Response Operations Management and Information Centre DRR disaster risk reduction DSWD Department of Social Welfare and Development DTI Department of Trade and Industry

EC Evacuation Center ECCD early childhood care and development EFSA Emergency Food Security Assessment EiE Education in Emergencies EMOP Emergency Operation ER early recovery ERC Emergency Relief Coordinator ETC emergency telecommunications

FAO Food and Agriculture Organization of the United Nations FIMO Field Implementation and Monitoring Office FNRI Food and Nutrition Research Institute FP family planning FTR family tracing and reunification

GAM global acute malnutrition GCRV grave child rights violation GRP Government of the Republic of the Philippines

HAP Humanitarian Action Plan HC Humanitarian Coordinator HCT Humanitarian Country Team HEMS health emergency management staff HIS health information session HRMS Humanitarian Response Monitoring System

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IACAT Inter-Agency Committee Against Trafficking IASC Inter-Agency Standing Committee ICG International Contact Group ICS Incident Command System IDDK interagency diarrheal disease kit IDPs internally displaced people IEC information, education, communications IEHK interagency emergency health kit ILO International Labour Organisation IM information management INEE Interagency Network for Education in Emergencies IOM International Organisation for Migration IPHO Integrated Provincial Health Office IRA Immediate Response Act IT information technology IYCF infant and young child feeding

J-CCCH Joint Coordinating Committees for the Cessation of Hostilities

KCODE Kutawato Coalition of Development NGOs KFI Kadtuntya Foundation Incorporated

LGU Local Government Unit LRT Logistics Response Team LSB local school boards LTA Long-Term Agreement

MAM moderate acute malnutrition MCH maternal and child health MCL mobile clinic and laboratory MDGs Millennium Development Goals MERN Mindanao Emergency Response Network MHPSS mental health psycho-social services MHT Mindanao Humanitarian Team MILF Moro Islamic Liberation Front MinHRAC Mindanao Human Rights Action Centre MISP minimum initial service package MLGU Municipal Local Government Unit MNLF Moro National Liberation Front MRE mine risk education MRM monitoring and reporting mechanism MSEE Minimum Standard for Education in Emergencies MSF Médecins Sans Frontières MSWO Municipal Social Welfare Officer MT metric tons MTB Mindanao Tulong Bakwet MUAC mid-upper-arm circumference MVP mobile and vulnerable populations MYROi Muslim Youth Religious Organisation Incorporated

NBC newborn care NDCC National Disaster Coordination Council NDRRMC National Disaster Risk Reduction and Management Council NFI non-food item NGO non-governmental organisation NNC National Nutrition Council NPA New People’s Army NPP Nonviolent Peaceforce NRC Norwegian Refugee Council NSCB National Statistical Coordination Board NSO National Statistics Office

OCD Office of Civil Defense

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OCHA Office for the Coordination of Humanitarian Affairs OIC Organization of the Islamic Conference OPAPP Office of the Presidential Adviser on the Peace Process ORG Office of the Regional Governor (of the ARMM) OTP outpatient therapeutic feeding programme

PAMANA Payapa at Masaganang Pamayanan (Resilient Communities for Peace and Development) PBSP Philippine Business for Social Progress PCSP Peace Committee for the Southern Philippines PDAL Peace and Development Advocate Leagues PNRC Philippine National Red Cross PTCA Parent-Teacher Community Association PWG Protection Working Group

QRT quick response team

RDCC Regional Disaster Coordinating Council RDRRMC Regional Disaster Risk Reduction and Management Council RFU Regional Field Unit RH reproductive health RHU rural health unit RUTF ready-to-use therapeutic food

SAM severe acute malnutrition SFA Site Focal Agency SFP supplementary feeding programme SGBV sexual and gender-based violence SOMA Suspension of Military Actions (by the MILF) SOMO Suspension of Military Operations (by the Armed Forces of the Philippines) SOP standard operating procedures SPEED surveillance in post-extreme emergencies and disasters SRA security risk assessment SRH sexual and reproductive health STI sexually transmitted infection

TESDA Technical Education and Skills Development Authority TLC temporary learning centre TMS Technical Management Services (of the ORG) ToR terms of reference

UN United Nations UNDAC United Nations Disaster Assessment and Coordination UNDAF United Nations Development Assistance Framework UNDP United Nations Development Programme UNDSS United Nations Department of Safety and Security UNFPA United Nations Population Fund UNHCR United Nations High Commissioner for Refugees UNICEF United Nations Children’s Fund UnYPAD United Youth for Peace and Development UXO unexploded ordnance

VAWC violence against women and children VHF very high frequency VIP ventilated improved pit (latrine) WASH water, sanitation and hygiene WFP World Food Programme WHT Women’s Health Team

YEM Youth Employment and Migration

108

Consolidated Appeal Process (CAP)

The CAP is a tool for aid organizations to jointly plan, coordinate, implement and monitor their response to disasters and emergencies, and to appeal for funds together instead of competitively.

It is the forum for developing a strategic approach to humanitarian action, focusing on close cooperation between host governments, donors, non-governmental organizations (NGOs), the International Red Cross and Red Crescent Movement, IOM and United Nations agencies. As such, it presents a snapshot of the situation and response plans, and is an inclusive and coordinated programme cycle of:

• strategic planning leading to a Common Humanitarian Action Plan (CHAP); • resource mobilization leading to a Consolidated Appeal or a Flash Appeal; • coordinated programme implementation; • joint monitoring and evaluation; • revision, if necessary; • reporting on results.

The CHAP is the core of the CAP – a strategic plan for humanitarian response in a given country or region, including the following elements:

• A common analysis of the context in which humanitarian action takes place; • An assessment of needs; • Best, worst, and most likely scenarios; • A clear statement of longer-term objectives and goals; • Prioritised response plans, including a detailed mapping of projects to cover all needs; • A framework for monitoring the strategy and revising if necessary.

The CHAP is the core of a Consolidated Appeal or, when crises break out or natural disasters strike, a Flash Appeal. Under the leadership of the Humanitarian Coordinator, and in consultation with host Governments and donors, the CHAP is developed at the field level by HCT. This team includes IASC members and standing invitees (UN agencies, IOM, the International Red Cross and Red Crescent Movement, and NGOs that belong to ICVA, Interaction, or SCHR), but non-IASC members, such as national NGOs, can also be included.

The Humanitarian Coordinator is responsible for the annual preparation of the consolidated appeal document. The document is launched globally near the end of each year to enhance advocacy and resource mobilization. An update, known as the Mid-Year Review, is presented to donors the following July.

Donors generally fund appealing agencies directly in response to project proposals listed in appeals. The Financial Tracking Service (FTS), managed by the United Nations Office for the Coordination of Humanitarian Affairs (OCHA), is a database of appeal funding needs and worldwide donor contributions, and can be found on http://fts.unocha.org.

In sum, the CAP is how aid agencies join forces to provide people in need the best available protection and assistance, on time.

OFFICE FOR THE COORDINATION OF HUMANITARIAN AFFAIRS (OCHA)

UNITED NATIONS PALAIS DES NATIONS NEW YORK, NY 10017 1211 GENEVA 10 USA SWITZERLAND