June 24-28 th , 2008

Introduction

This report presents findings and recommendations from a rapid assessment of areas affected by Typhoon Frank in parts of Mindanao in the Philippines in late June 2008. The assessment was conducted jointly by the staff of CRS, NASSA (national Philippines Caritas), and two Social Action Centers (SACs) of the Archdiocese of Cotobato and Diocese of Marbel. After providing brief background information, main findings and recommendations are presented, with more detailed data and photographs attached in annex.

Background

Typhoon Frank (known internationally as F engshen ) struck the Philippines during June 20-22, 2008. Originally expected to brush the Samar and Bicol areas in the eastern Philippines at a minor Category 1 intensity level, the storm intensified instead to a serious Category 3 and unexpectedly changed course, cutting across the southern island of Mindanao, then heading north by northwest across the Visayas before crossing parts of Luzon including Manila, before exiting to the South China Sea.

As of June 28 th , the overall destruction resulting from Typhoon Frank was reported* as follows:

• 718,457 families or 3,662,958 persons affected;
• 15 regions, 49 provinces, 48 cities, 401 municipalities, and 5140 baranguays (communities) impacted;
• 540 deaths (identified and recovery bodies), with 175 injured and 41 missing;
• 301,642 houses damaged (76,098 totally and 225,544 partially)
• 7,317,188,568.21 Pesos ($182,929,714 USD) in damages (consisting of infrastructures, school and other public facilities, and agriculture assets)

More than 11 maritime accidents were caused by the typhoon, the most notable of which was the sinking of the Princess of the Stars, a ferry carrying more than 800 persons between Manila and Cebu . Heavy flooding caused the most serious losses of lives and livelihoods, followed by strong winds, tidal surges, and landslides. The most seriously affected geographical areas are considered to be 10 provinces and 12 individual municipalities of which the majority are found in the Visayas (notably Panay Island) and Mindanao (vicinities of Cotobato and General Santos City).

Rationale and Objectives

This assessment report only covers affected areas in Mindanao in the Cotobato Archdiocese and Marbel Diocese. A decision was made to focus on Mindanao since Typhoon Frank initially made landfall there and early reports indicated substantial damage. CRS has a strong presence in Mindanao (offices in Cotobato and Davao ), also making it a logical choice for potential interventions. A rapid assessment team was quickly organized consisting of the following personnel:

• Rex Millano, Cotobato Archdiocese Social Action Center Program Coordinator
• Father Roming, Social Action Center Director, Marbel Diocese
• Ruth Manansala, NASSA Program Officer
• Ryan Russell, Regional Emergency Advisor, CRS
• Melindi Malang , CRS/Cotobato Health Manager
• Edwin Antipuesto, CRS/Cotabato Peace-Building Manager

Separate assessments of affected areas of the Visayas are being carried out by Social Action Centers there with support from NASSA. Ryan Russell, the SEAPRO Emergency RTA was immediately ready for deployment following the completion of an emergency training conducted with NASSA from June 16-20 th.

Objectives of the assessment were as follows:

1. Determine Typhoon Frank's impact on lives and livelihoods in both Dioceses;
2. Identify priority needs in areas most affected;
3. Recommend appropriate intervention actions for each Social Actions Center , to be supported by NASSA and CRS.

Activities and Locations Visited

Day 1 – Cotobato City , Esperanza, Pikit,

• Cotobato City Mayor's Office: Assistant Mayor, City Secretary, RDCC Chair
• Evacuation Center at School in Cotobato City
• Department of Health in Cotobato City : Dr. Tahir
• Catholic Parish in Esperanza near Isulan
• Evacuation Center in Esperanza: Head of Baranguay and other evacuees
• Mayor of Esperanza.
• Parish and Mayor of Pikit, North Cotobato

Day 2 – Lambayong, Isulin, Marbel, Saringani, Maitum,

• St. Joseph 's Parish at Lambayong
• Municipality of Lambayong
• Broken dike and flooded areas in Lambayong
• Bishop of Marvel Diocese and Marbel Social Action Center
• Parish at Maitun
• Municipal Disaster Coordination Committee in Maitun
• Route from Maitun to General Santos City , passing through Kiamba Municipality

Day 3 – Lambayong, Cotobato City , Data Analysis

• St. Joseph 's Parish at Lambayong
• Evacuation Center at Lambayong
• Auxiliary Bishop of Cotobato Diocese in Isulin
• Archbishop of Cotobato in Cotobato City
• Consolidation of Data, Analysis, and Reporting Planning by team in Cotobato

The team began its work mid-day on June 24 th after the arrival of Ryan Russell and Ruth Manansala in Cotobato. The compilation and analysis of data was completed on June 28 th.

Main obstacles and challenges included getting detailed information from the most affected municipalities and baranguays because of physical access by the assessment team, as well as government and church officials. Fighting between the MILF and government forces also broke out while the team was visiting municipalities in the Marbel Diocese of the Surangani Province , forcing them to turn back.

Findings/Observations

A. Impact on Lives and Livelihoods -

Areas Affected:

• States of Calamity were declared in 3 provinces - Sarangani, Sultan Kudarat, North Cotobato – out of 10 nation-wide.
• In 5 municipalities States of Calamity were also declared (in addition to municipalities in the above provinces) - Lake Sebu , Surallah, Santo Nino, Tiboli , and South Cotobato
• Other affected provinces in Mindanao include: Shariff Kabunsuan, Maguindanao, Lanao Del Sur, Tawi-Tawi, Basilan, Davao del Norte, Lanao del Norte, Misamis Oriental, Misamis Occidente, Zambaoanga Del Sur

The assessment team visited Cotobato City , plus the Magindanao (MMR), Sultan Kudarat, North Cotobato, and Sarangani Provinces . Initial information from Church parishes, in addition to the Regional Disaster Coordination Council (RDCC) in Cotobato City informed the assessment's geographical focus. Information was seriously lacking from Magindanao and Shariff Kabunsuan Provinces, with access to both also limited because of security considerations.

Data from Affected Provinces :

Archdiocese of Cotabato

Diocese of Marbel

More complete data compiled from team visits and consultations as of June 28 th are attached in annexes. Comprehensive data for Totally and Partially Destroyed Houses at provincial levels was still unavailable, although authorities were able to estimate based on detailed information coming from some municipalities. Likewise, accurate and comprehensive figures for lost cropland were still being compiled and verified, although qualitative estimates could be made based on figures from localized areas. *For Sarangani, nearly all displaced by the typhoon returned home, but many were displaced due to conflict during June 25-26.

Gap Analysis/Coordination :

Other than government actors (regional, provincial, and municipal Disaster Coordination Councils and line organizations), very few NGOs appeared to have been active so far in responding to the typhoon, or planning to do so. The Red Cross had provided assistance in areas of Cotobato City and Sarangani Province of the Marbel Dioceses. Action Contre La Faim (ACF) was in discussion with the Department of Health to focus on sanitation issues (the Department of Health was also interested in collaborating with CRS). Municipalities in the Sarangani Province appeared to be much better organized and active than counterparts in Lambayong and Sultan Kudarat.

Analysis:

Archdiocese of Cotabato

Provinces and municipalities within the Cotobato Archdiocese were more severely affected. Nearly all affected people were displaced from their homes during and/or directly following the typhoon. Although a large number of communities were affected in the Maguindanao and Shariff Kabunsuan Provinces , it also appears that within a few days most were able to return. The same appears to be true for the other provinces and municipalities, where populations were able to leave evacuation centers or host families once floodwaters receded. Two noticeable exceptions were the Lambayong Municipality ( Sultan Kudarat Province ), and areas of Cotobato City where families have not been able to return home because floodwaters still inundate vast areas.

Diocese of Marbel

Most severely affected areas in the Marbel Diocese are the Maitum, Maasim, Alabel, and Kiamba Municipalities. Although government figures report a high number of totally destroyed homes for Maasim, church sources report that government agencies had things largely under control in Maasim, with most displaced people being able to take shelter with other families. In the Maitum Municipality , most displaced families (with the exception of 42 with totally destroyed houses) returned home by June 24 th , but found themselves displaced again to Maitum on June 25 th when a fresh round of fighting broke out between government forces and MILF rebels on June 25 th.

Cotobato City

Damage was most pronounced in communities along major rivers, especially where tributaries join them. Located within a major delta area where the Allah and Pulangi watershed converge, Cotobato suffered major flooding aggravated by major sedimentation that has been building up for the last few years. Consequently, both Allah and Pulangi Rivers were blocked up and spilled over their banks to flood wide expanses of communities and cropland, many of which were already under sea level. Presently, it is not clear how low-lying areas may be drained, especially since the course of some rivers has changed, flows are still blocked by sedimentation, and embankments destroyed.

Lambayong Municipality

A major dike along the Allah River broke on June 21rst, resulted in every baranguay of the Lambayong Municipality being covered in water. The dike had been a problem for some time, and only days before Typhoon Frank it became clear that efforts by the municipality to reinforce its foundation during early 2008 had failed, leaving it in a weakened state. When the team visited the site of the former dike on June 25-26 th , water was still flowing into Lambayong with the volume and velocity of a major river. Estimates are that it will take several weeks if not months to build a new dike, requiring additional works to divert the Allah River during construction. Until then, more than 4160 families, or more than 24,000 individuals will not be able to return. An estimated 1000 households were not able to evacuate their homes, but remained on rooftops or small areas of high ground.

Displaced Persons

Evacuation Centers visited in Cotobato City and in the vicinity of Lambayong, revealed people living in cramped and inadequate conditions, often lacking access to potable water and sanitation facilities. Most evacuation centers are in existing schools, churches, health centers and other public buildings which are suitable for only a few days since they were not designed to house families on a regular or more long-term basis. In one school near Lambayong, each of 20 classrooms were occupied by 12-15 families, or over 70 persons on average; there were only 4 latrines for 1200 people. At an evacuation center in Cotobato City , there were no latrines at all, and inhabitants had to swim several hundred meters to access water at a public tap they had to pay for. Diarrhea and fevers were reported by many displaced people, especially among children. While most people in evacuation centers have received some food from government agencies, it was usually enough for only 1-2 days. Needs were expressed by displaced people and local government officials in different areas for soap, jerry cans, cooking pots, blankets, etc.

Returnees and Lost Assets

With the exception of Cotobato City and Lambayong, only small numbers of families remained displaced in most areas, usually because their homes had been totally destroyed and there was no place else to go. The extent of to returnees had lost important household assets to flooding, or the degree of effects of partial damage to homes is still not totally clear and may require additional time for assessment. In some areas such as North Cotobato Province flooding occurred more gradually, allowing families time to take important items with them, whereas in other areas where flash flooding occurred such as Lambayong in Sultan Kudarat, families had little time to save assets.

Livelihoods

Cropland damage was extensive and most families had just finished planting during June. Beyond not being able to harvest crops in October, the implication is that they will not be able to repay traders who provided them with seeds and inputs on a loan basis where they typically must may 10% additional interest per month. Authorities revealed that the livelihoods of most farmers depended on this system. In the months leading up to the typhoon, food insecurity had been increasing due to high food prices, with families becoming more and more dependent upon government subsidized staples for their survival. Families in evacuation centers said they were forced to spend what money they had left and exchange remaining assets for food.

B. Needs Identified

Based on analysis of the situation of affected communities the following categories of need were identified in order of priority:

1. Food Security – (two main types):

Food Availability and Access

Immediate provision of food is necessary for displaced families that lost food stocks and whose homes and assets are either still underwater or were totally destroyed. This includes potentially thousands of families in the Lambayong Municipality as well as in evacuation centers in Cotobato City where floodwaters are not receding. Families who have returned to communities will also likely face food shortages due to loss of food stocks and assets.

On a longer term basis, food shortages will likely continue for some time given that tens of thousands of families lost all or part of their crops, as well as the degree of food insecurity building before the typhoon.

Loss of Crops and Agricultural Assets

Large numbers of farmers in affected areas lost crops just planted for the 2008 season. Provision of agricultural inputs, mainly appropriate seeds and tools is necessary if they are to be able to harvest at least once before the end of 2008. Lack of access to essential agricultural inputs will mean they will not be able to feed families, pay back loans to traders from the current planting season (lost crops), and likely be dependent on food hand-outs. Fishermen and fish farmers in Cotobato City and Sarangani Province also lost many of their means to livelihood. Some officials contacted speculated that lack of viable alternative livelihood means could result in some individuals opting to join armed insurgent groups.

2. Damaged Infrastructures and Fields

Damaged infrastructures include roads, bridges, dikes, and public buildings such as schools and medical facilities. Larger infrastructures hopefully will be rehabilitated or reconstructed by the government. Many smaller infrastructures such as irrigation systems and embankments likely will not be covered by government projects and must be carried out by locals. This will present challenges since many people affected by the typhoon will be forced to spend their time and energies rebuilding homes or earning income through whatever means in order to make ends meet. A substantial proportion of fields in many areas are covered by sand, mud, or otherwise damaged and in need of rehabilitation before planting of crops can occur again.

3. Lack of Essential Household Items -

Displaced families in evacuation centers expressed needs for different household items (or NFIs) in different locations. Without jerry cans, many are unable to collect water, or purity it, despite the fact teams from the Department of Health are giving presentations on how to use chlorine tablets. Several complained they need soap in order to be able to keep themselves and families clean. Others said that multiple families are forced to share cooking pots and utensils. Other needs cited include additional blankets, clothing, and mosquito nets, the latter since many are living in close proximity to flood waters. Some families who have returned home may also need NFIs in cases where all possessions and assets were lost. People at one evacuation center (a school) raised fears they soon would be forced to leave within a few days, and raised the need for tents or tarps to protect them from rains.

4. Health –

Displaced people and some authorities expressed a need for medicines. The Department of Health did appear to be actively deploying teams to assist displaced and other affected people. Probably it is best if government teams or other specialists administer medicines. Sensitization on health related topics and support of groups with medical expertise are needed, however.

Recommendations

Sectors and Activities :

1. Immediate Assistance – focusing on families still displaced by floodwaters

Areas: Neighborhoods of Cotobato City , Lambayong Municipality (26 communities) of the Sultan Kudarat Province

Activities:

1. Food Distributions – of essential staples (rice, noodles, oil, salt, coffee, sardines), which may supplement or complement any governmment assistance available.
2. NFI Distributions – follow-up assessment of targeted evacuation centers and communities will identify quantities of appropriate items (most likely soap, kitchen sets, blankets, mosquito nets, jerry cans).

A key consideration is the length of time people continue to be displaced. In the case of Lambayong, this could last anywhere from a few weeks to a few months. CRS is currently working with NASSA and the Cotobato Diocese to finalize plans and budgets.

2. Recovery Assistance – focusing on assisting affected families recover their agricultural livelihoods

  Areas: Baranguays of most affected Municipalities and Provinces

  Activities:

1. Provision of Agricultural Inputs – Families that lost their crops due to flooding are in urgent need of seed and tools, either right away or before October 2008.
2. Food for Work – For many communities, rehabilitation of fields and infrastructures will be necessary before they can resume their livelihoods, while at the same time dependents of families are in need of food. Food for Work was identified as a strategy to simultaneously address both needs – provide food while promoting rehabilitation work necessary for people to be able to resume their livelihoods and provide for themselves.

Implementation Capacities :

Both Marbel and Cotobato Dioceses in Mindanao have experience in agriculture, while NASSA has supported other dioceses in the Philippines with Food For Work programs in the past. CRS also has a number of qualified agriculture and livelihoods staff in the Philipines, specifically in Mindanao .

Important Considerations:

All activities will be closely linked to Peace-Building activities already carried out by CRS and the Dioceses, since affected areas in Mindanao overlap with those affected currently or in the past by political violence and religious strife. Careful attention will be paid so that assistance will build connections and trust between different religious communities as opposed to creating divisions or heightening mistrust. This is significant since the CRS Assessment in Mindanao noted that displaced people tended to gravitate to different Evacuation Centers based on religion, and that suspicions already existed that certain religious groups might be excluded from assistance.

Resources for Implementation :

A table with local prices for food staples, some NFI items, and seeds, in addition to transportation and other distribution costs are attached in Annex 1. The cost of food package (including rice, dried fish, salt, sugar, mongo, and cooking oil plus soap) for a family of 8 persons for 10 days is estimated to be 1315 pesos ($32.88 USD) at current food prices. What remains to be determined is the number of beneficiaries that both Cotobato and Marbel Dioceses want to serve.

Conclusion

In terms of immediate needs following Typhoon Frank, the few thousand families still displaced and unable to return home due to persistent floodwaters are clearly a priority. These families requiring food and some NFIs are located mostly in evacuation centers surrounding the Lambayong Municipality , as well as in some remaining evacuation centers in Cotobato City . People from Lambayong may remain displaced for some time, perhaps even weeks or potentially months. In the latter case, efforts will need to be made to ensure evacuation centers meet Sphere standards.

For most affected areas in Mindanao , recovery is really the main issue, since most families have returned home but require assistance in order to re-launch livelihoods while making ends meet after suffering lost and damaged assets. The loss of crops and destruction of fields, irrigation systems, and other local infrastructures will create considerable challenges and probably aggravate food insecurity which was already increasing before Typhoon Frank.

All assistance provided must be carried out carefully with the aim to encourage greater connections between different communities (notably Christian and Muslim) and not further tensions.

Decisions must be made concerning how to allocate funding and resources between Mindanao and the Visayas. For their part, both Cotobato and Marbel dioceses need to make specific funding requests for the types of assistance they would like to provide and number of people they would like to serve. Both dioceses in Mindanao prefer to have an idea as to what resources may be at their disposal before committing to assisting specific numbers of affected people with government agencies or communities themselves. If the availability of overall funding for Typhoon Frank still is not clear, a quick decision must be made concerning what made be available right away for immediate assistance in areas like Mindanao .

Archdiocese of Cotabato Relief Operations

* National Disaster Coordination Council “Situation Report No. 22 re Typhoon “Frank” Fengshen” June 29 th , 2008: Quezon City , Philippines available on www.reliefweb.int