Dashboard

2 01 4 A n n u a l M i n d a n a o

DISPLACEMENT

Dashboard Summary

123,779 77,656 918,170 140,000 12,000 +

Total displaced persons by conflict in 2014 Presently displaced persons by conflict since 2012 Total displaced persons by natural disaster in 2014 Presently displaced persons by natural disaster since 2012 Total “evacuees” / forcibly returned from Sabah, Malaysia

Armed Conflict in Central Mindanao In 2014, a total of 123,779 persons have been displaced by conflict in Mindanao. The majority 103,946 of IDPs are a result of armed conflict with government forces an additional number of 19,833 persons were displaced by clan feuds. Since the ceasefire agreement with MILF, most of the incidents of conflict related displacement were due to armed clashes between the Armed forces of the Philippines (AFP) and the Bangsamoro Islamic Freedom Fighters (BIFF). During 2014 UNHCR and partners monitored 10 significant incidents between the AFP and BIFF resulting in a total of 67,773 IDPs, a little more than half of all displacement due to armed conflict between state and non-state actors. AFP and BIFF clashes recorded the same number of armed conflict encounters in 2013 that resulted in displacement. On the other hand, UNHCR also recorded a total of 62 additional conflict incidents involving BIFF. These reported incidents did not result in displacement but are reported by the AFP as BIFF activities that contribute to an unstable peace and security situation in the central Mindanao region where the BIFF is operational. The majority of the displaced population from AFP and BIFF clashes is located in the in Maguindanao province of the Autonomous Region of Muslim Mindanao (ARMM). The largest single displacement in Maguindanao took place end of January 2014, 48 hours after the signing of the Normalization Annex of the peace agreement. The AFP launched a “policing operation” against the BIFF resulting in over 25,000 IDPs. Throughout the year particularly in the Datu Piang barangays of Ganta and Bakat there have been repeated clashes displacing smaller numbers of people on both sides of the Pulangi River. Most of these IDPs have returned but presence of the AFP in these areas has made communities hesitant to permanently return fearing to get caught in clashes between the AFP and BIFF and other armed groups in the area. In August there was another large displacement of over 10,000 people in the Datu Piang barangays. A separate displacement in August of 4,741 IDPs in North Cotabato, Pikit, barangay Kabasalan took place when the AFP launched a mortar attack against BIFF positions. In November 2014, ten separate conflict incidents occurred that caused displacement of over 23,000 people, the largest number of incidents in one month during the year, eight of them in Maguindanao and Region XII. All but two of these were a result of AFP-BIFF clashes. December 2014 was the only month of the year that no conflict incidents were reported that caused displacement. Despite this, the security situation in Central Mindanao marsh areas from Cotabato City as far south as SK Pendatun municipality in Maguindanao remains volatile with AFP, BIFF clashes and inter-clan fighting (rido) between MILF members are a constant threat to stability. The boundary municipalities of North Cotabato in Region XII, Pikit, Midsayap, Shariff Saydona and Datu Piang in Maguindanao (ARMM) recorded over 89,336 persons displaced this year. Of these there are a recorded 18,130 persons displaced by land conflicts between Muslim and Christian communities in these border areas.

UNHCR Mindanao, Philippines I

As of December 2014, Page 1 The Mindanao Displacement Dashboard is a monthly publication of the United Nations High Commissioner for Refugees (UNHCR) in Mindanao, Philippines. This publication aims to provide an overview of the protection environment of displacement incidents in Mindanao for each month. Displacement incidents were collected with the support of Protection Cluster members in Mindanao.

GPH/MILF Peace Process Update On 25 January 2014, the Normalization Annex of the Framework Agreement on the Bangsamoro was signed in Malaysia. Within 48 hours after the agreement, the AFP launched a “policing operation” against the BIFF in Shariff Saydona Mustapha, Maguindanao which caused the largest one day displacement in 2014 (see AFP/BIFF above). Despite ongoing conflict in Mindanao and protests from many political quarters, the peace process continued throughout 2014. Many agreements formed coordination mechanisms to support the process. In March 2014 the Comprehensive Agreement of the Bangsamoro (CAB) was signed. The agreement lays down the road map to establish an autonomous political entity in Mindanao. In April, the Bangsamoro Basic Law (BBL) was formally adopted by the Bangsamoro Transition Commission (BTC) and provided to the office of the President for review. There was an impasse when the MILF “rejected the rejection” of the Joint Commission of the President’s Office. The delay and uncertainty of approval of the BBL caused increased tension in communities. During August the questions related to the BBL where ironed out. In September, President Aquino led the handover of the draft of the BBL to the Senate & House leaders. This milestone was followed again with another armed encounter between the AFP and BIFF in North Cotabato province wherein 2 soldiers and 10 BIFF members were killed. During this time there were efforts to bring the MNLF into the peace process by including them in the discussions of the BBL. In October, the Independent Decommissioning Body (IDB) and the Bangsamoro Coordination Forum (BCF) were formalized. The IDB will oversee the decommissioning of MILF forces and their weapons while the BCF will serve as a mechanism for the MNLF and MILF to “coordinate achieving the aspiration of the Bangsamoro people towards just and lasting peace”. In November, the Coordination Team for Transition (CT4T) was created to assist in the process. Other efforts include the drafting of a Bangsamoro Development Plan (BDP) focusing improvement of services and the formation of the United Bangsamoro Justice Party (UBJP), the MILF political party for the 2016 elections. At the time of this report, the President has reconfirmed that the BBL remains a priority law to pass for the national government.

Women displaced due to the armed conflict between the AFP and the BIFF in Barangay Pagatin, Datu Salibo Municipality, Maguindanao Province are among the most vulnerable groups who face greater protection risks. Targeted assistance to them needs to be monitored. © UNHCR R. Kulat/2014

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2014 Annual Mindanao Displacement

As of December 2014, Page 2

Region IX: Zamboanga Conflict Displacement At the start of 2014 there were approximately 65,000 IDPs identified as in need of protection by the DSWD. This was down from the earlier recorded 132,000 soon after the conflict in September 2013. The Grandstand evacuation center with over 20,000 IDPs was gradually reduced over many months that improved humanitarian conditions. and movement to temporary or transitory sites (TS) had begun but the conditions of these locations did not meet adequate standards, including the size of the shelters, sanitation and of most concern, not enough water. The below protection concerns were highlighted:

For six years, families in Barangay Pusao, Sultan sa Barongis remain displaced in a difficult situation. These families fled their homes after an armed conflict erupted in 2008 because of failed peace talk. © UNHCR E. Monato/2014

AFP and NPA conflict, Eastern and Northern Mindanao There are only four reported incidents of displacements in areas with the presence of the New People’s Army (NPA) in Regions XIII, XI and IX where low intensity conflict continued in 2014. The Commission on Human Rights (CHR) reported during the year that NPA and AFP conflict was increasing compared to the previous year, however a relatively low number of 3,345 persons were reported displaced in 2014 from these incidents (UNHCR reported on only 2 incidents in 2013 displacing 1,045 persons). In addition, at least 52 security incidents such as, ambush, murders, extortion, armed attacks, kidnapping and bombings involving NPA have been reported. The feedback from two recent indigenous people (IP) working group discussions with CHR, includes the description of mining and forestry activities impact on communities and people caught between the AFP and NPA conflict, indicates incidents are under reported. IPs and LGU representatives describe apprehension in communities to report on incidents as the communities are split between their allegiances’ to either side of the conflict and fearful of being exposed as a supporter of either side. The peace and security situation involving clashes between the AFP, NPA and para-military groups of the IPs is complex and difficult to analyze and often not even reported. The use of IPs in paramilitary groups and anti-insurgency campaigns has been a major source of inter-intra tribal conflicts. Government efforts to protect various economic and commercial interests such as mining, high value crop plantations and land conversion projects have thwarted the advance of the insurgency and have regained communities from the control of the CPP-NPA-NDF. These efforts have brought a large AFP military deployment to the region. According to AFP sources, Eastern and Northern Mindanao has the combined forces of 18 Battalions focused in NPA areas. Their presence particularly in remote and upland IP communities implementing the GoP Internal Peace and Security Plan has brought increased accusations of human rights violations and Grave Child Rights Violations by both the AFP and NPA in some of these communities. These incidents have been difficult to verify and have received little attention by the national government and the media. Monitoring and reporting displacement in these areas remains a challenge for human rights defenders, both government and non-government actors. Apart from the ICRC, the international community, including the UN has few programmes or monitoring and reporting activities in these NPA-AFP-IP conflict regions of Mindanao.

UNHCR Mindanao, Philippines I

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Designated “No Return Areas” preventing the Sama and Tausug tribe IDPs who depend on the sea for their livelihood from returning to their placed of habitual residences in coastal barangays.

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The prolongation of displacement exposes IDP families to further protection risks, including exploitation and abuse.

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Illnesses in EC and TS lead to emergency mortality rates six times during 2014.

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Repeated claims of “illegitimate” IDPs or “fake” IDPs distract efforts for durable solutions for IDPs.

Violence, abuse and exploitation of women and children are widespread because of lack of access livelihoods.

The City authorities have developed the Zamboanga Roadmap to Recovery and Reconstruction Plan (the Z3R “build back better” plan) that initially focused on roads and other infrastructure in the city without prioritizing IDPs. With the support of the DSWD and international donors, IOM constructed a large relocation site 7 km outside of the City center (Mampang) and began relocating IDPs to this location. Mampang is far from where the IDPs can access their livelihoods, does not have adequate health and access to schooling and lacks basic services. At the end of the year approximately 800 families (approximately 4,000 individuals) had been relocated to Mampang living in below recognized Sphere standards. The DSWD and City authorities had planned with IOM to increase Mampang to 1800 families. After eight months, humanitarian actors have successfully advocated to stop transferring IDPs to Mampang until adequate services are provided. Relocation had been put on hold at the end of the year, however small movements of IDPs continue. Without adequate services in the Grandstand and transit locations and little progress in the construction of permanent shelters for IDPs, a year had past and IDPs continued to face serious humanitarian conditions. After much advocacy for return and relocation to areas where IDPs can fend for themselves and restart their lives, towards the end of the year the City authorities started to allow IDPs to return to the islands of Leha-Leha and Layag-Layag where they can restart seaweed farming and fishing to provide for their families. At the same time construction of 400 houses on stilts began in Mariki, the seaside “Ground Zero” location previously determined as a “no return” area. At the time of this report (February) the island of Sumariki has also been approved for return, albeit, the return to these islands is said to be “temporary” and returning families who have lived in these islands for generations are required to sign an affidavit stating that they agree their return is temporary pending the construction of permanent shelters in an undetermined location. By the end of the year over 1,200 families remained in the Grandstand EC and over 800 families in Mampang TS. The relocation sites of Tulungatung, Taluksangay and Buggoc have IDP populations under 2,000 who can access enough services and a livelihood as they slowly integrate into these areas. There are 2,020 IDPs families living with hosting families many in the community they resided before the conflict (home-based IDPs), that are still in need of a durable solution. At the time of this report, the City has agreed to use land they recently purchased in Kasanyangan as a temporary and permanent shelter site as planned in the Z3R. IDPs have agreed to move to this area which is similar to Buggoc where they can access the sea and their original livelihoods. If Kasanyangan is developed, with the completion of Mariki, the planned 200 additional shelters in Buggoc and other Z3R permanent sites that are being constructed, within four months the Grandstand can be free of IDPs and Mampang can be decongested to a sustainable number of IDPs. The City authorities are slowly realizing that durable solutions need to be provided in order to ensure their Z3R “Building Back Better” plan is successful. UN, international and national actors have continued to work closely with the City authorities and the DSWD, however coordination and agreement on a protection strategy has not been successful which has contributed to the limited number of IDPs with a durable solution 16 months after the conflict.

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2014 Annual Mindanao Displacement

As of December 2014, Page 3

Clan Feud (Rido) Displacement Monitoring This year, 11 out of 21 reported incidents of clan feud caused displacement in the municipalities of Aleosan, Tulunan, Matalam and Midsayap in North Cotabato province, Sultan sa Barongis, Datu Abdullah Sangki, Maguindanao province and Hadji Mohammad Ajul, Basilan province. An estimated 19,833 persons were forced to flee from their homes. With these unresolved conflicts many IDPs have decided to resettle in neighboring barangays leaving their livelihoods behind. Land conflict and political differences among warring families is the most common reason of clan feud in Mindanao that often dates back generations resulting in repeated displacement and families without a solution to their displacement as the feud repeatedly erupts. Though clan feud is also present in regions outside Mindanao, disputes involving clans in Moro Mindanao areas seem to have been least addressed by authorities and the communities. Clan feud is further complicated by many incidents involving armed groups such as MILF, MNLF, BIFF, ASG and the NPA. The largest displacement of over 7,000 persons from clan feud over a land conflict on the boundary of Pikit and Aleosan municipalities involved commanders and members of the MILF, MNLF and BIFF. This indicates how communities include members from different armed groups that use their weapons to resolve local disputes not necessarily related to an armed group’s political agendas. Reporting on incidents of clan feud is difficult because it often takes place in areas that have an ongoing armed conflict taking place in addition to a specific clan feud. This is particularly the case in Lanao del Sur and the Island provinces of Sulu and Basilan. In Lanao del Sur, the AFP reported over 114 cases of clan feud involving crimes and violence, land conflict and political conflict. Clan feud forces family members to flee their homes for fear of retaliation and often affects surrounding communities not involved in the feud. In central Mindanao, UNHCR was able to identify 8,726 persons who are displaced more than once due to clan feud and 8,698 IDPs still in need of a durable solution as at end of 2014. The majority of these presently displaced IDPs are living in neighboring host barangays of the border municipalities in Region XII (North Cotabato) and ARMM. There is not accurate information in the Island Provinces about the number of IDPs from clan conflict who are still in need of a durable solution.

Natural Disaster Displacement Monitoring Natural disasters, including heavy rains and flooding displaced a recorded 918,170 persons in Mindanao this year which is almost the same in 2013 at 909,102 persons displaced. The majority of the IDPs displaced by natural disaster are from the CARAGA region (95%) which is traditionally affected by typhoons. CARAGA is a mountainous area with many underdeveloped IP communities also affected by AFP/NPA/IP conflict (see section above). Since 2013, ARMM, the less developed region has had 67,419 persons displaced more than once and Region XII reported 51,170 persons displaced more than once both from natural disasters and conflict. In Region XI at least 120,000 persons are still in need of a durable solution. These IDPs were displaced in December 2012 during Typhoon Bopha. Many of the areas affected by the typhoon are also known AFP/NPA conflict affected areas. Sources of Information: Protection Cluster Philippines Members Department of Social Welfare and Development Office (DSWD) Disaster Risk Reduction and Management Offices Commission on Human Rights (X, XI, XII, Caraga)

Regional Human Rights Commission-ARMM ARMM-Humanitarian Emergency Action Response Team (ARMM-HEART) UnyPhil-Women, Inc. Nonviolent Peaceforce, Inc. (NP)

This displaced family needs to start all over again after their dwelling was completely burned down because of an armed encounter between two warring clans in Sitio Resingan, Barangay Dungguan, Aleosan municipality. Despite the insecurity, they have returned to their place of origin and try to rebuild their home. UNHCR assists them by providing them a temporary roofing. © UNHCR E. Monato/2014

Island Provinces Displacement Monitoring The three Island provinces of ARMM are still plagued with instability and unrest due to sporadic clashes between the Abu Sayaf Group (ASG), other lawless armed groups and the AFP. The conflict incidents include search and clearing operations by the AFP, individual and group attacks by the ASG on police and AFP personnel and equipment. From AFP reports, 7 armed clashes between the ASG and AFP displaced over 16,000 people in Basilan and Sulu, the largest displacement in Al Barka, Basilan in December 2014 when over 10,000 persons fled from an AFP clearing operation against ASG. These incidents only represent those reported with casualties and populations displaced for more than a few days. Short duration displacement usually caused by clan feuds or police operations are not often recorded by government agencies. Therefore displacement and protection issues are not well recorded and understood. Through the ARMM-HEART and the provincial governments of the island provinces there is a concerted effort to strengthen coordination, displacement monitoring, reporting and response. But challenges remain high due to continuous lack of access because of security, resulting in the inability to report and respond effectively. Historic, political and poverty-driven sympathies lead to support for the ASG. Lone criminal groups and the ASG are known for abducting persons for ransom. The ASG reportedly retains links with international terrorist organizations such as AlQaeda and Jemaah Islamiyah. Over 75 security incidents were attributed to ASG this year, including kidnappings of Malaysian, Chinese and German nationals, Filipino government officials and farm workers. On Sabah “Evacuees”/Forcibly Returned Monitoring An estimated 12,000 persons forcibly returned from Sabah Malaysia was monitored in 2014. At least 5,860 of these are recorded in Zamboanga City while an estimated 600 forcibly returned persons per month is reported in the Island provinces based on reports from the Regional Human Rights Commission (RHRC). In 2013, from March-June a total of 17,328 were forcibly returned. However, there were no addition reports collected between July-December 2013. Bangsamoro Development Agency (BDA) Mindanao Tulong Bakwit (MTB) Community and Family Services International (CFSI) Silangang Dapit sa Habagatang Sidlakang Mindanao (SILDAP) Mindanao Human Rights Action Center (MinHRAC)

Government Line Agencies Local Government Units

DISCLAIMER The Annual Mindanao Displacement Dashboard aims to provide a starting point for information and analysis that can help protection agencies, policy makers and other stakeholders concerning instances of forced displacement or solutions (repatriation, resettlement, integration). The number of people displaced / affected may differ from the number in need of humanitarian assistance. To the extent possible, the terminology used in the Dashboard reflects the UN Guiding Principles on Internal Displacement and other sources of international law and practice. The information reported in the Annual Mindanao Displacement Dashboard has been received from members of the Protection Cluster across Mindanao. Consequently, unreported cases of forced displacement and solutions are not reflected. Updates will be provided as and when more information is received from members. Although efforts are made to verify the data, the UNHCR Mindanao, Philippines takes no responsibility for the incompleteness or inaccuracy of the information. The information provided in this Annual Mindanao Displacement Dashboard does not necessarily reflect the views of UNHCR or any individual member of the Protection Cluster.

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