Evacuation Center Assessment of Internally Displaced Persons in Kitcharao, Agusan Del Norte, Philippines: A Basis for Government Policy Intervention and Business Corporate Social Responsibility

Evacuation Center Assessment of Internally Displaced Persons in Kitcharao, Agusan Del Norte, Philippines: A Basis for Government Policy Intervention and Business Corporate Social Responsibility

by:

Joseph El Roy B. Cassion II

Faculty, Arts and Sciences Program, Father Saturnino Urios University

PhD Economics Student, Ateneo de Manila University

 

ABSTRACT 

 

The Sustainable Development Goals number 16 emphasizes the promotion of peaceful and inclusive societies for sustainable development. However, the on-going armed conflict between the Armed Forces of the Philippines and some rebel groups is one of the hindrances for this sustainable goal to be achieved. This has caused several internal displacements in different provinces of the Philippines. Given the seemingly  perennial problem on armed conflict which leads to a significant number of internal displacement, the United Nations High Commissioner for Refugees (UNHCR) has set minimum standards and key operational and protection procedures for humanitarian evacuations in order to assure the safety and well-being of the internally displaced persons. Moreover, according to the Internal Displacement Monitoring Centre (IDMC), Caraga Region recorded the highest number of “bakwits” or internally-displaced persons (IDPs) in Mindanao due to communist insurgency, one of the world’s longest-running conflicts. This is due to the armed conflict between the New People’s Army, which is the armed wing of the Communist party of the Philippines, and the Philippine Government. From 2008 to 2012, there were about 43, 809 individuals who were displaced due to armed conflict. Last June 10, 2018, an armed conflict between the Philippine Army and the alleged members of the New People’s Army occurred in Sitio Zapanta Valley in Kitcharao, Agusan Del Norte which displaced 126 families or a total of 521 persons. Anent to this, this study aims to assess the temporary shelter of the internally displaced persons in Kitcharao, Agusan Del Norte whether it follows the minimum standards and key operational and protection procedures for humanitarian evacuations as set by the UNHC. Findings of this assessment could help provide better policy recommendations and corporate social responsibility initiatives to ensure the safety and protection of the internally displaced persons in Kitcharao when armed conflicts occurs, and to make temporary shelters or evacuations centers in Kitcharao a more liveable place in times of disasters, whether man-made or caused by nature. 

 

1. Introduction 

According to Zuber (2016), sustainable development is not attainable without peace and there will be no peace without sustainable development. Moreover, Sustainable Development Goal Number 16 emphasized the promotion of peaceful and inclusive societies for sustainable development. Unfortunately, the present armed conflicts between the Armed Forces of the Philippines and some rebel groups hindered the achievement of this goal resulting to several incidences of internal displacement in various provinces in the Philippines. Anent to this, according to the Internal Displacement Monitoring Centre (IDMC) as mentioned by  Catoto (2013),  Caraga recorded  the highest number of “bakwits” or internally-displaced persons (IDPs) in Mindanao due to the communist insurgency, one of the world’s longest-running conflict. This is due to the armed conflict between the New People’s Army, the armed wing of the Communist party of the Philippines, and the Philippine Government. From 2008 to 2012, about 43, 809 individuals were displaced due to the armed conflict. It also appears that the mining industry of the region was the most wanted subject of attacks by the communist armies in the recent years.  In addition, with  the seemingly  perennial problem on armed conflict which leads to a significant number of internal displacement, the United Nations High Commissioner for Refugees (UNHCR) has set minimum standards and key operational and protection procedures for humanitarian evacuations in order to assure the safety and well-being of the internally displaced persons. Moreover, last June 10, 2018, an armed conflict between the Philippine Army and the alleged members of the New People’s Army occurred in Sitio Zapanta Valley in Kitcharao, Agusan Del Norte which displaced 126 families or a total of 521 persons. Anent to this, this study aims to assess the temporary shelter of the internally displaced persons in Kitcharao, Agusan Del Norte, whether it follows the minimum standards and key operational and protection  procedures for humanitarian evacuations as set by the UNHCR. This is done with the aim of helping provide better policy recommendations to ensure the safety and protection of the internally displaced persons in Kitcharao, when armed conflicts occur and to make temporary shelters or evacuations centers in Kitcharao a more liveable place in times of disasters, whether man-made or caused by nature. Moreover, the assessment of the temporary shelters could also be a basis for corporate social responsibility programs or projects when such disasters occur. 

 

 

1.2 Statement of the Problem 

Specifically this study sought to answer the following questions: 

1. What are the minimum standards and key operational and protection procedures set by the UNHCR? 

1. How did the government and other agencies respond to the armed conflict last June 2018? 

1. Does the humanitarian evacuation in Kitcharao, Agusan del Norte follow the minimum standards and key operational and protection procedures set by the UNHCR? 

 

1.3 Conceptual Framework 

 

This study aims to assess whether the evacuation center or the temporary shelter in Kitcharao, Agusan del Norte met the minimum standards and the key operational and protection considerations of UNHCR. This is in relation to the armed conflict in Sitio Zapanta Valley in Kitcharao, Agusan Del Norte which displaced 126 families or a total of 521 persons.  Thus, the liveability of the temporary shelter in Kitcharao, Agusan del Norte serves as the dependent variable of this study, which is determined by the minimum standards and the key operational and protection considerations of UNHCR, which serves as the independent variable. The result of the assessment will serve as basis in the possible policy recommendation and corporate social responsibility program or projects in terms of the liveability of the temporary shelters during natural and man-made disasters. The paradigm of the study is presented in the figure below. 

1.4 Corporate Social Responsibility and Armed Conflicts 

According to Rieper (2013), businesses or transnational corporations have shown to have a negative involvement in terms of causing and fuelling conflicts in relation to political economy war. However, despite this image of the transnational corporations (TNCs), Rieper (2013) argues that TNCs are now expected to be a contributing factor for the prevention of conflict, crises management and post-conflict peace building. Given the case comparison of Shell’s engagement in Nigeria and BP’s engagement in Azerbaijan, results her study show that transnational corporation’s company characteristics and production, as well as its transnational civil society activism, are important determinants of corporate engagement gearing to peace and security. 

 

Moreover, Carbonnier (2001) mentioned that there is indeed a relationship between business and humanitarian action. Given the emergence of globalization, private sector does play an important role in terms of international relation. Multinational corporation influences on handling war situation and in resolving conflicts have been growing increasingly. As an example, Carbonnier (2001) stated that large firms are primarily interested to have partnerships with the Red Cross or the Red Crescent to operate in conflict zone as a form of their social responsibility. The assembly of the International Committee of Red Cross (ICRC) in December 1999 has encapsulated these objectives for the private firms in response to humanitarian actions. First is the promotion of humanitarian principles among firms operating in war-prone regions, and second is the strengthening of the ICRC’s network in an operational level with the involvement of business leaders. 

Furthermore, Hansson (2013) showed in his study that corporate social responsibility’s international framework differs significantly in various companies. Businesses with corrupt practices usually show a negative result in terms of the implementation of the international framework. More so, the study revealed a positive impact in companies which invested in employment of former combatants in post-conflict situation and the recruitment of a mixed workforce. The study concludes that having an international framework is critical in raising awareness about the wider legal implications for companies active in areas where there is an armed conflict, thus, international humanitarian law must become clear to companies. They should also know the actions to take in addition to international human rights law in areas of armed conflicts. Also, there is a need to facilitate tools for corporate social responsibility following the UN Guiding Principles in providing what corporate social responsibility is.  

 

2. Methodology 

This study used descriptive analysis in order to describe the liveability of the temporary shelter in Kitcharao, Agusan del Norte during the armed conflict last June 2018, whether it has met the minimum standards and the key operational and protection considerations of the UNHCR. The study utilized secondary data from key government agencies and a face to face interview of key informants who were involved during the internal displacement.  

 

2.2 Research Environment 

The study took place in the Municipality of Kitcharao, Agusan del Norte. Kitcharao is a 4th class municipality of Agusan del Norte, a landlock province located in the coastal area of Agusan del Norte. As of the 2015 census, the province has a total population of 18,659, which represents 5.26% of the population of the entire Agusan del Norte. In a more specific lens, the study primarily took place in Barangay Bangayan covered court in Kitcharao, Agusan del Norte which served as the temporary shelter of the internally displaced persons of the June 2018 armed conflict. 

 

2.3 Data Gathering and Procedure 

1. The researcher retrieved secondary data from The Disaster Response Operations Monitoring and Information Center (DROMIC) of the Department of Social Welfare and Development (DSWD) on its report on the armed conflict in Kitcharao, Agusan del Norte last June 10, 2018. 

1. The researcher retrieved the minimum standards and key operational and protection considerations of the UNHCR. 

1. The researchers conducted an interview from the local government of Kitcharao specifically the Municipal Social Welfare and Development (MSWD) and the families who were displaced during the armed conflict. 

1. Using the answers of the key informants and the data retrieved from DROMIC-DSWD, the researcher assessed the liveability of the temporary shelter in Kitcharao, Agusan del Norte whether it has followed the minimum standards and key operational and protection considerations of the UNHCR. Based on the answers of the key informants on their assessment on the key operational and protection considerations of the UNHCR, assessment was made using a color scheme and its corresponding interpretation: 

Moreover, to generalize the key operational and protection considerations of the UNHCR, the minimum standard was also assessed using this color scheme. 

Once assessment has been made, the researcher suggested actionable recommendations for the temporary shelters during disasters, natural or man-made, in Kitcharao. 

 

3. Results and Discussion 

Objective 1: What are the minimum standards and key operational and protection procedures set by the UNHCR? 

There are nine (9) minimum standards as set by the United Nations High Commissioner for Refugees for humanitarian evacuation namely: 

1. Civilian will be protected against attack and be granted safe passage during an evacuation. 

1. Both civilians and any persons detained / hors de combat must be treated humanely in accordance with the international law, regardless of whether they are included in a humanitarian evacuation. 

1. The parties to the conflict must allow and facilitate rapid and unimpeded passage of humanitarian relief for civilians in need, which is impartial and conducted without any adverse distinction, subject to their right of control. 

1. Certain international humanitarian agencies such as ICRC will need access to any persons detained before, during, and after the humanitarian evacuation to register them and monitor their treatment. 

1. Civilians will not be arbitrarily deprived of objects indispensable to their survival, nor will their access to relief supplies be impeded. 

1. The sick and wounded must be cared for. 

1. Children must be afforded special protection. 

1. Humanitarian organizations should be able to undertake all measures to safeguard family unity, including tracing of family members. 

1. The safety and protection of humanitarian and medical personnel, as well as humanitarian convoys should be respected before, during and after humanitarian evacuations. 

 

In relation to the nine minimum standards, key operational and protection procedures are also put in place for a smooth sailing humanitarian evacuation. The following are the key operational and protection procedures as mentioned by UNHCR (2016) and their corresponding minimum standards. 

1. Use as a life  saving measure 

Evacuation sites or temporary shelters are life saving measures for individuals. The temporary shelter must assure the safety of the internally displaced persons physically and emotionally. 

1. Necessity of safe access to crisis affected community 

Humanitarian actors must have a safe and unhindered access to the conflicted site for them to assess whether evacuation is necessary. 

1. Respecting voluntariness  

Humanitarian evacuation must be voluntary. There is a need to have a dialogue with the community at risk to level expectations, intentions and needs to facilitate evacuation and to prepare the relocation area. 

1. Preserving the civilian character 

Ensuring that the individuals in the evacuation center is unarmed and no weapons, arms, or ammunitions are boarded. 

1. Multidisciplinary  responses 

Objects indispensable for the survival of the internally displaced person shall not be deprived nor the access to relief supplies be impeded. As such, multidisciplinary action response from different key agencies is needed. 

 

 

 

1. Selection of  safe and secure  relocation sites 

Relocation areas will likewise need to be secure and at a safe distance from hostilities, besiegedor hostile areas as well as border areas. Essential services, including food, water, shelter, medical care, etc. will need to be available in these locations. 

1. Family-unity preserved  

Children and parents should not be separated against their will in the evacuation site. Also, children must be given special protection. 

1. Right to return promoted 

It is the right of the individual who evacuated to return to their place of origin and residence one the conflict ended only if the condition of the area permits. 

1. Mobilizing Support 

State must have the overall responsibility to protect their citizens and humanitarian actors. 

 

Objective 2: How did the government and other agencies responded to the armed conflict last June 2018? 

Based on the report of DSWD DROMIC (2018), 126 families or 521 individuals were affected with the armed conflict between the 29th IB of the Philippine Army and alleged CPP-NPA members in Sitio Zapanta Valley, an upland area of Brgy. Banagayan in Kitcharao, Agusan del Norte. Moreover, according to DSWD DROMIC (2018), Php 400, 816.00 worth of assistance was given to the affected families, in which  Php 216, 846.00 came from the DSWD, Php 153, 100.00 came from the Local Government Unit of Kitcharao, and  Php 30, 870.00 came from Non-Government Organizations. 

The table below shows the situational report of DSWD – DRMB and DSWD – FO Caraga as shown in the DSWD DROMIC Report last June 2018. 

Image Source: Department of Social Welfare and Development Disaster Response Monitoring and Information Center 

 

 

Objective 3: Does the humanitarian evacuation in Kitcharao, Agusan del Norte followed the minimum standards and key operational and protection procedure set by the UNHCR? 

The researcher conducted a face to face interview with three respondents from Brgy. Zapanta Valley who were temporarily displaced in the evacuation center in Barangay Bangayan Covered Court last June 208, and a representative from the Municipal Social Welfare and Development of Kitcharao to assess whether the minimum standards and key operational and protection procedures set by the UNHCR were followed during the humanitarian evacuation in  Kitcharao last June 2018. The table below shows the results and the assessment.  

Furthermore, the table below shows the assessment about the observance of the minimum standard set by the UNHCR. 

Minimum standards number 1 was not observed as per interview with the key informants. It was them who decided to evacuate from the valley and went to the barangay proper for them to be temporarily evacuated. They were not escorted going to the evacuation site. In the side of the MSWD, armed conflict is unpredictable unlike natural disasters, that is why it is always the initiative of the affected persons to evacuate when they feel the risk and danger of staying in their homes. 

 Moreover, the minimum standards number 2 was partially observed, though the LGU, MSWD and barangay facilitated and welcome them in the covered court. The informant felt discomfort in their temporary shelters, some of the affected persons did not have mats and blankets, some were sleeping in the cement and some used “kartons” as their sleeping beds. Also, the medic or municipal health worker  were not that  visible to cater the medical needs of the affected persons though the Philippine army assisted sick persons going to the  nearby hospital.  

In terms of minimum standard number 3, it is partially observed because according to the key informants, the supply of relief goods was not enough for them.  Shortage of relief supplies was also a problem during their two-week displacement.  

Moreover, the presence of the  International Committee of the Red Cross was not evident during the evacuation, hence, minimum standard number 4 was not observed. According to the explanation of the MSWD officer, the ICRC was not present during that conflict because the armed conflict which occurred in Sitio Zapanta Valley was not an international scope. In lieu of the ICRC, the responders during the armed conflict in the evacuation centers were the Municipal health workers. 

To continue, according to the key informants, the supply of relief goods was not enough for them. Most of the goods were noodles and sardines, food that they were not used to eat. There was also a shortage of mats, blankets and clothing for the affected persons. Some slept in the floor and some used “kartons” as their sleeping mat. Also, some were not used with the climate or temperature in the evacuation center which caused some of them to be sick. With these reasons, minimum standard number 5 was only partially observed. 

On the other hand, minimum standard number 6 was partially implemented due to the lack of visibility of the medic or first aiders in the evacuation site. Also, according to the key informants, there was no enough supply of medicine in the evacuation center. Though, the Philippine army escorted those who were seriously sick or ill to the nearest hospital. 

Furthermore, children and adults were equally treated in the evacuation site. There were no specific relief for children. Stress debriefing for children was also not mentioned by the MSWD officer and the key informants. According to the key informants, a lot of children got sick in the evacuation site because they were not  used to the climate and the food that they was served in the evacuation site.  However, family unity (minimum standard 8) was fully observed in the evacuation site. The MSWD assured that the families or household were not separated in the evacuation site.  

Lastly, minimum standard number 9 was fully observed because no humanitarian actor / responders was put into danger during the armed conflict in Sitio Zapanta Valley in Kitcharao. 

 

Conclusions 

1. In terms of key operational and protection procedures, five procedures were partially implemented due to lack of specific guidelines and procedures of the front liners. Also, four of the procedures were implemented – these are the standard operating procedures which were commonly done.  

1. With regards to the minimum standards, minimum standards 1, 4 and 7 were not observed due to the lack of capacity building of humanitarian actors. Minimum standards 2, 3 5 and 6 were partially observed. The reason behind this partial observation is the shortage of relief goods and the environment or the condition of the evacuation center. Also, the presence of the medical aid in the evacuation center was also considered in this observation. Furthermore, minimum standards 8 and 9 were fully observed during the incident.  

1. Cooperation between the Local Government Unit and the stakeholders must be present in times of disasters. Local corporations and businesses can make initiatives for their corporate social responsibility to make programs and projects that can uplift the liveability of the evacuation centers during disasters.  

 

Recommendations 

Corporate Social Responsibility 

1. Firms and businesses can be in partnership with the local government unit to be of help in times of evacuation. Donations such as beds, clothing and food can be a good initiative for corporate social responsibility. Also, firms which donate food must be culturally sensitive of the culture of the evacuees for some evacuees are not much familiar with instant food such as with the situation of the indigenous people evacuees in Kitcharao.  

1. Moreover, private medical institutions can send aid during the period of the evacuation such as medical aid, doctors and nurses to be present in the evacuation. This is to ensure that access to medical aid is present in the evacuation site.  

1. Stress debriefing for the evacuees is also needed especially to children. Private firms can send psychologists and counselors to ensure the mental health of the evacuees.  

1. Firms can also create projects in terms of construction of quality evacuation centers which follows the guidelines set by UNHCR.  

1. Fund or conduct capacity trainings of humanitarian actors in terms of humanitarian evacuation to ensure proper handling of evacuation situation. 

 

 

Local Government Unit (LGU) of Kitcharao 

1. The local government of Kitcharao needs to review the guidelines set by UNHCR for humanitarian evacuation to craft more efficient policies and protocols in times of evacuation. 

1. The LGU of Kitcharao must craft a standard operating procedure during humanitarian evacuation. 

1. Proper profiling of the internally displaced person must be taken into implementation. 

1. There is a need for capacity and capability training of the humanitarian actors. 

1. Strengthen the security of each barangay with the help of the Philippine Army, police and other stakeholders.  

 

Department of Social Welfare and Development / Municipal Social Welfare and Development 

1. Secure that the relief goods are enough for the evacuees during the evacuation period. Also, in choosing the relief goods to give, the department must consider giving nutritious foods and foods that are adaptive to the needs of the evacuees.  

1. Allocate budget for the operations of humanitarian evacuations. 

1. Consider the creation of a more convenient and comfortable evacuation center. Perhaps, a public private partnership can be considered in this project.  

1. There must also be a close monitoring and partnership among stakeholders during humanitarian evacuation.  

 

 

In Handling Internally Displaced Persons 

1. A stress debriefing must be done every humanitarian evacuation.  

1. They must be provided with proper sleeping beds, mats and pillows, and other essential goods that they need during the evacuation period.  

1. The basic needs including medicines must be sufficient. 

1. The humanitarian actors must be culturally sensitive in terms of how to handle the internally displaced persons.  

National Government 

1. Peace talks and negotiation among rebel groups must be pushed through to end armed conflicts. 

1. Create or strengthen agencies which are the front line in terms of natural and man-made disasters.