a review of the displaced population in eight cities of colombia: local institutional response,...

8/14/2019 A review of the displaced population in eight cities of Colombia: local institutional response, living conditions and r

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Bogota D.C., november o 2007

A review of the displacedpopulation in eight cities ofColombia: local institutional

response, living conditionsand recommendations fortheir assistance

Summary o results, general refections andrecommendations


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Coordination Team andTechnical Direction ICRC-WFP

Technical Team of the TemporaryAllianceUnin Temporal Econometra-S.E.I.

S.A.(rm that carried out the study)

Christina OberliCoordinator Humanitarian Assistance Department

ICRC

Mara Gloria CanoDirector o the study

Mara Cecilia CuartasSpecialist in Health and Nutrition

WFP

ngela Consuelo CarrilloAdvisor Humanitarian Assistance Department

ICRC

Yamile PalacioDirector o eld work

Copyright: A review o the displaced population in eight citieso Colombia: local institutional response, living conditions andrecommendations or their assistance. ICRC-WFP, 2007

International Committee o the Red Cross (ICRC)

World Food Program (WFP)

Bogota, D.C, ColombiaNovember 2007

http//: www.cicr.orghttp//: www.wp.org/latinoamerica

Design: Design Process LtdaPrinting: Linotipia Martinez


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PresentationSince 2004, the International Committee o the Red Cross (ICRC) and the World Food Program (WFP)have been working, jointly, in a process to establish the living conditions o the displaced population inthe country.

This process, motivated by the two institutions concern or the Colombian civilian population aected bythe confict, has materialized in two studies that provide an overview o the displacement phenomena,its causes and consequences. Today, ater two years o work, we are pleased to submit or yourconsideration the executive summary o the joint study, whose purpose is to urther the identication othe displaced populations needs, as well as the current institutional response in view o improving thecare provided to this population group.

The study was carried out between November 2006 and June 2007, in eight (8) o the most importanthost cities or displaced population in the country, i.e.: Barranquilla, Bogota, Cartagena, Florencia,Medelln, Santa Marta, Sincelejo and Villavicencio. Data gathering was perormed by Unin TemporalEconometra - Sistemas Especializados de Inormacin S.E.I. S.A.; the rm hired to carry out the

study.

The ICRC and WFP hope that the results presented here, in a summarized manner, enable the dierentactors associated with the provision o assistance to the displaced population in the country, to becomeeven more sensitive to the situation and the needs o this population. This is how we hope that theNational, Provincial and Municipal governments, the national non governmental organizations, theinternational organizations, the private sector, civil society and the organizations o the displacedpopulation, all o which constitute the active parties in the national refection on this issue, join eortsand resources in order to improve and provide more services or this population. In this sense, thisdocument aims to support constructive dialogue and a better coordination o such initiatives.

Finally, we wish to extend our deepest gratitude to the displaced and resident population, to the nationaland municipal institutions, to the regional teams o both our institutions, to the head oces o the ICRCand WFP in Geneva and Rome, and to the Unin Temporal Econometra- S.E.I. S.A. or their decisive

and valuable support in this process.

BarbaraHintermann PraveenAgrawal

Head o Delegation or the ICRC in Colombia Representative o the WFP in Colombia


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Table o content

Note on the translation ........................................................................................................................... 5

Introduction ........................................................................................................................................... ....7

1. Conceptual Framework .......................................................................................................................... ..8

2. Methodology ......................................................................................................................................... ..10

3. General refections ................................................................................................................................. .17

4. Results or the eight cities ...................................................................................................................... 20

4.1 Institutional organization or the assistance to the displaced population........................................23

4.2 Assistance Cycle or the displaced population................................................................................. 25

4.3 Characterization o the displaced population in terms o living conditions.....................................26

4.4 Analysis o the institutional response in relation to the conditions o the displacedpopulation ............................................................................................................................................... 30

4.4.1 Status o the displaced person............................................................................................................... 30

4.4.2 Emergency Humanitarian Assistance (AHE) and psychosocial assistance.........................................33

4.4.3 Housing...................................................................................................................................................... 37

4.4.4 Perception o ood security and ood assistance................................................................................. 44

4.4.5 Health, vaccinations and supplementing o micronutrients...............................................................48

4.4.6 Education and Early childhood assistance............................................................................................. 53

4.4.7 Training, subsidy program and support programs or income generation.......................................60

4.4.8 Protection o rural assets abandoned due to orced displacement ..................................................65

5. Final comments and priorities................................................................................................................. 68

6. Annexes..................................................................................................................................................... 69


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Summary o results, general refections and recommendations

The ollowing document has been translated rom Spanish to English which has presented challengeswith respect to the translation o context specic terms. The most noteworthy case being the term

atencion which is used in the title and throughout the Spanish version but which encompasses theEnglish notion o attention as well as that o general care, provision o assistance and services. In thatsense these terms have been alternately used in the English version to try to best represent the broaderconcept o Atencion.

In addition to some o the technical terms that are context specic, another diculty has been translatingthe name o the wide range o institutional bodies and programs that are reerred to in the document.Because most o these are known by their acronym rather than their ull name in Colombia, or thesake o clarity, a literal translation will be given when they are rst mentioned in the text but urtherreerences will be made using their Spanish acronyms.

The list o these organizations and programs, as well as their corresponding Spanish names and acronyms,is presented below:

Note on the translation

Spanish name Acronym English name used in this document

Indice de Condiciones de Vida ICV Living Conditions Index

Departamento Nacional de Planeacin DNP National Planning Department

Programa Nacional de Desarollo Humano PNDH National Human Development Program

Agencia Colombiana de CooperacinInternacional

ACCI Colombian International Cooperation Agency

Registro nico de Poblacin Desplazada RUPD Central Registy or Displaced Population

Assistencia Humanitaria de Emergencia AHE Emergency Humanitarian Assistance

Unidades de Atencin y Orientacina Poblacin Desplazada

UAOAssistance and Orientation Units or the Dis-placed Population

Sistema Nacional de Atencin Integral

a la poblacin desplazada

SNAIPDNational Comprehensive Assistance System or

the Displaced PopulationInstituto Colombiano de Desarollo Rural INCODER Colombian Institute or Rural Development

Servicio Nacional de Aprendizaje SENA National Learning Service


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A review of the displaced population in eight cities of Colombia: local institutional

response, living conditions and recommendations for their assistance

Spanish name Acronym English name used in this document

Instituto Colombiano de Bienestar Familiar ICBF Colombian Institute o Family Welare

Sistema General de Participaciones SGP General System o Participation

Departamento Administrativo Nacionalde Estadsticas

DANE National Statistics Department

Comit Local de Atencin a PoblacinDesplazada

CLAIPDLocal Committees or Comprehensive Assistanceto the Displaced Population

Comit Municipal de Atencin a PoblacinDesplazada

CMAIPDMunicipal Committees or ComprehensiveAssistance to the Displaced Population

Comit Departmental de Atencina Poblacin

CDAIPDDepartmental Committees or ComprehensiveAssistance to the Displaced Population

Operacin Prolongada de Socorroy Recuperacin

OPSR Extended Aid and Recuperation Operation

PAHU Humanitarian Assistance Program

Salarios Mnimos Legales Mensuales Vigentes SMLMV Legal minimum monthly wage

Programa Red de Seguridad Alimentaria RESA Food Security Program

Sistema General de Seguridad Social en Salud SGSSS Healthcare System

Administradora del Rgimen Subsidiado ARS Subsidized Healthcare Operator

Plan Obligatorio de Salud POS Mandatory Health Plan

Caja de Compensacin Familiar CAFAM Family Benet Fund

Organizacin Nacional Indgena de Colombia ONIC Colombian National Indigenous Organisation

Programa de Asistencia Econmica PAE Economic Aid Program

Sistema de Seleccin de Beneciarios SISBEN Beneciary Selection System

Plan Integral nico PIU Unied Comprehensive Plan

Necesidades Bsicas Insatisechas NBI Unsatised Basic Needs


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IntroductionThe International Committee o the Red Cross(ICRC) and the World Food Program (WFP) carriedout an analysis o the local institutional response,living conditions and recommendations or the careo the population displaced as a result o violencein the cities o Barranquilla, Bogota, Cartagena,Florencia, Medelln, Santa Marta, Sincelejo andVillavicencio. This document presents a summaryo the results or the eight cities covered by thestudy. The study was completed in all cities byJune 30th o 2007, with the exception o Medelln,whose closing date was March 31st o 2007.

In each o these cities the work consisted in planningand designing the methodology, gathering andanalyzing the secondary inormation, gathering,processing and analyzing the primary inormationobtained via the use o sampling surveys andinterviews with institutions. On the basis o theprimary and secondary inormation, interviewswere perormed with the institutions in charge oassistance or the displaced population and ocusgroups were held with the community. Finally,a consolidated and city specic analysis wasperormed or the eight cities.

This study looks at themes such as the statuso the displaced, emergency humanitarianassistance, housing, perception o ood security,health, education, income generation and theprotection o patrimonial assets (land) o thedisplaced population. This is accomplished on the

basis o an analysis o the institutional responseaccording to criteria o coverage, access, timeliness,appropriateness, quality, sustainability andcoordination, taking into consideration specicitiesrelated to gender and ethnic background.

The results only apply to the cities and thepopulation covered by the study, that are denedhereunder as the displaced population, includingregistered and non registered households.As a matter o principle, the study seeks to be

positive and to contribute to refections on publicpolicy with a ocus on the oer and demandor State services. The ndings have enabledthe ormulation o some general refections andrecommendations.

The results o this study could be used as a baseline to ollow up on uture assistance programsor the displaced population.

It is important to mention that because this is an

executive summary it does not contain detailedresults. A more thorough analysis o some o theissues can be ound in the documents written oreach one o the cities.

PhotographSource: Archives ICRC-WFP


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The analysis o the institutional response to theneeds o displaced households, in this study, isbased on a concept known in human developmentliterature as livelihoods1. This concept has beendeveloped during the last teen years and it isdened as the

mechanisms o control that anindividual, a amily or another social group hasto generate income and /or a series o resourcesthat may be used or traded to satisy needs. Thismay encompass inormation, cultural know how, social networks, legal rights, as well as physicalresources, like land and tools2.

The livelihood o a amily is characterized by

three components: 1) Sensitivity that reers tothe capability to respond quickly to changes, 2)

Flexibilitythat implies the capacity to bounce backater having aced a crisis, adapting to the newcircumstances and, 3) Sustainability that reers tothe result o the interaction between sensitivityand fexibility and entails the capability to meetones essential needs with ones livelihood. That isto say, that a sustainable livelihood is one wherea amily may ace and recover rom internal andexternal shocks and continue to meet essentialneeds. When these elements are not present,the amily aces uncertainty with regards to theirlivelihood.

The Living Conditions Index (ICV -as per its initialsin Spanish)) is used in this study as a quantitativeestimate o livelihood and qualitative aspects areurther incorporated in the interpretation o theresults. The ICV was designed by the NationalPlanning Department (DNP) o Colombia, as parto the National Human Development Program

PEREZ DE ARMIO, Karlos. Accin Humanitaria y Coopera-cin para el Desarrollo, 1999

BLAIKIE, P., T. CANNON, I. Davis and WISNER, B. (1994), AtRisk. Natural Hazards, Peoples Vulnerability and Disasters,Routledge, Londres and Nueva York. Pag. 9.

Op. Cit. Perez de Armio, 1999

1. Conceptualramework



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Factor1Individual Human Capital or Accumulation

o Human Capital

Factor2Basic Social Capital

Maximum schooling level or the head o household Schooling level o persons older than 12 years o age Those between 12 and 18 years o age that are enrolled

and at school Those between 5 and 11 years o age that are enrolled

and at school

Overcrowding Ratio o children under 6 years o age

Factor3Collective physical capital: Collective accumulation o assets

Factor4Individual physical capital

Evacuation o sewage Water supply Waste collection Fuel used or cooking

Predominant material used in fooring Predominant material used in walls

Source:DNP, Misin Social, 2006

(PNDH)4. This index includes the actors presentedin Chart No. 1 and Attachment No. 1.

The ICV is an index that assigns a score that rangesrom 0 to 100 or each household, where 100 is the

maximum score. In addition, it enables the scoreo the household to determine i they have or notthe minimum living conditions. The PNDH projecthas established that i a household has 67 pointsor more, it has surpassed the extreme poverty line

and it has a minimum living standard. In thisstudy this minimum living standard is assumed tobe one where the household has advanced to a

minimum acceptable level o livelihood.

The initial hypothesis is that a displacedhousehold may surpass the minimum livelihoodstandard with support rom the institutional

The Programa Nacional de Desarrollo Humano (PNDH) isa joint Project o the National Planning Department (DNP Departamento Nacional de Planeacin) and the Colom-bian International Cooperation Agency (ACCI AgenciaColombiana de Cooperacin Internacional) and the UnitedNations Development Program (UNDP). 1993 -2005.

The National Human Development Program (PNDH). TheColombian municipalities that pursue the Millennium De-velopment Goals 2006. The minimum living standard isstipulated constitutionally, based on the rights o amilies asstated in the Colombian Constitution o 1991 (Chapter 1,Section 1 to 3. Articles 1 thru 82).

response and the development o their capacityto cope with their situation. In this study theinstitutional response is understood to bethe recognition o the households Displaced

Status (Filing the Declaration and Registering),emergency humanitarian assistance, education,health services, housing, ood security, incomegeneration and protection o the abandonedamily assets (land). This assistance implies notonly coverage and access, but also timeliness,appropriateness, quality and sustainability, whichall require a coordinated inter-institutional eortor their implementation.

According to the Law 387 o 1997, A person is deemeddisplaced when he or she has been orced to migrate withinthe national territory, abandoning his or her normal resi-dence or regular economic activity because his or her lieor physical integrity, security or personal liberty are at stakeor are threatened, due to any o the ollowing conditions:Internal armed conict, civil unrest and internal tension,generalized violence, gross violations o human rights, vio-lations o International Humanitarian Law or other circums-tances that arise due to the aorementioned conditions thatmay alter or alter drastically public order. The displacedindividual due to the aorementioned circumstances has theright to be included in the List o the Central Registry orDisplaced Population (RUPD Registro nico de PoblacinDesplazada) which is under the responsibilit y o Accin So-

cial. Furthermore the displaced individual has the right toreceive aid as stipulated in the Law until his or her rights arereinstated. The registry is made once the person has fled adeclaration with the Public Ministry and once Accin Socialhas perormed the evaluation o the sworn testimony.

Chart No.1-ConstitutingfactorsoftheICV


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0A review of the displaced population in eight cities of Colombia: local institutional


2. MethodologyThe target population in this study is the displacedpopulation that, whether registered or not, livesin neighborhoods o social strata one (residentso the lowest o the six economic strata). Itshould be stressed that the unit o observationthroughout the study is the household. In viewo having parameters o comparison or the

socio-economic situation o households ando their access to services, data or the residentpopulation has also been collected in the sameneighborhoods studied.

In this study, a household is considered to bedisplaced when the head o the household or anymember o the household was displaced as o Jan1st o 20017 or the ollowing reasons:

Although they were not directly threatened,they were rightened by the situation o theirsurroundings.

An armed group drated a householdmember.

They were victims o direct threats.

A amily member was assassinated, kidnappedor has disappeared.

Another relationship with the confict (orexample, anti-personal mines).

A household is considered to be a residenthousehold when its members live in the sameareas as the displaced population in a social andeconomic strata o level one, that have not movedto the area or any o the aorementioned reasonsor that have been displaced beore January 1st o

1995, due to violence.

When analyzing the development o the liveli-hood o the displaced population,it is importantto consider that some amilies are more aectedby and are more sensitive to the displacementthan others. For this reason, emphasis on vari-ables such as ethnic background and gender

have been included in the analysis. Additionally,in accordance to their mandate, the ICRC8 andthe WFP9 have a special interest in identiying

In this study that cut o date was chosen, which does not implynegating the situation o displacement o households beore thatdate.

The ICRC pursues protecting and assisting all the all vic tims o theconict with impart iality, according to the level o vulnerability andneeds and recognizes that the conict aects women in a specifcmanner, and thus that they require dierentiated assistance. ICRC,Women in ace o war, 2006. Page. 8.

The WFP advocates or equality and equity among the genders,and additionally has incorporated a gender perspective in the vul-nerability analysis and has integrated it in evaluation guidelines othe needs o ood security. WFP. Inormative note regarding thestatus o enorcing the gender policy (2003-2007) o WFP. June o2005.



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Survey of the displacedpopulation an resident Interviews to institutions Secondary information

Problematic nodes

Qualitative in depth analysis of problematic nodes

Workshop with leaders ofthe displaced population

Analysis

Pondering conclusions and recommendations

In depth interviews ofinstitutions

Workshop withdisplaced community

the dierentiating characteristics o the displacedpopulation groups, as well as their needs and the

institutional assistance received.The gender ocus o the analysis is transversal andis thereore included in all issues associated withassistance or the displaced population. Fromthe household point o view, the dierences ohouseholds headed by women10 are analyzed incomparison with those headed by men, withouttaking into consideration whether they have aspouses11 or not. From the point o view o theservices or the assistance oered to the house-holds, the assistance that is dierentiated to each

group is considered.

As or the ethnic background, a household isconsidered to belong to a certain ethnic group(indigenous, aro Colombians and mestizos orwhite) as long as it is recognized as such by thehead o the household. In each city the percent-

0One should clariy that, in this study, the person who assumes therole o head o the household is recognized as such by the mem-bers o the household. Households headed by women are consid-ered to be those who have a woman as a decision maker with orwithout a spouse and households headed by men are those whohave a man as a decision maker with or without a spouse.

One should note that a single head o the household ( i.e. emaleor male without a spouse) has been viewed only in specifc issuessuch as income.

age o households interviewed belonging to aspecic ethnic group is considered in order to

decide whether or not to perorm analysis dier-entiated along ethnic lines12. In the specic caseo Sincelejo and Cartagena, an analysis with anethnic background perspective was perormedsince in the survey some 30% o the displacedhouseholds were aro Colombians or indigenouspeople. Furthermore, in Bogota workshops withleaders o indigenous people and aro Colombi-

ans were carried out.

In all the cities included in the study, the rst step

was the design and data gathering via a surveyo households (displaced and resident populationin social and economic strata o level one) andthe gathering o secondary inormation associ-ated with the institutional response to the needso the displaced population. As shown in diagramNo.1, once that data was analyzed, the problem-atic nodes were identied and urther analyzedthrough workshops with the displaced commu-nity (community members and leaders) and in-depth interviews with various institutions. Thejoint analysis o all this data with the use o sta-

tistical and econometric tools enabled the elabo-

In the case o a requency below 15%, the sample was not subdi-vided along ethnic backgrounds.

Diagram1-Methodologyofthestudy


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ration o conclusions and recommendations. Thenal result is a set o detailed reports or eachcity, executive summaries per city, and this con-solidated report on the eight cities.

The eldwork in the eight cities was carried outduring the months o April and May o 2007, ex-cept or the City o Medelln, where it was carriedout between November and December o 2006.

The questionnaires used or the survey consistedo two modules. The rst module was geared tothe household and included questions pertainingto the demographic and socio-economic situa-tion o the household, the declaration and regis-tration o displacement, protection o abandonedpatrimonial assets (land), emergency humanitar-

ian assistance (AHE), housing, issues associatedwith the SISBEN Survey, perception o ood se-curity, economic activity and income generatingprograms. The second module ocused on indi-vidual conditions such as health, education aswell as psychological and social assistance. Thismodule was used with all children younger thansix years o age, all nursing or pregnant women,all adults older than 61 years o age, and appliedto one member o the household between 7 and17 years o age and to one between 18 and 60

years o age.

Table No. 1 presents the total number o house-holds interviewed and the modules lled out. The

size o the entire sample was 4,801 displacedhouseholds and 4,811 resident households13, withthe sampling per city or each group being around600 households. It is important to clariy that thesample o the resident population is not represen-

tative o the total population o economic and so-cial strata one o the respective cities; it is used orcomparison with the displaced population. In or-der to have sucient data on the registered popu-lation in the RUPD a minimum requirement o 400registered displaced households per city was set.

In each city, at random, concentration points odisplaced population were selected, which arepresented in Chart No. 2. The source was the As-sistance and Orientation Units or the DisplacedPopulation (UAO)14, the Territorial Units o AccinSocial, the leaders o the displaced population,

Itconstitutes a rigorously selected sample through the determina-tion o 10 concentration points (more than 60 displaced house-holds) in a probabilistic manner, through the sequencing o eachpoint with a random start, identiying the displaced and residentpopulation to be surveyed. In the event that 10 or less concentra-tion points are identifed, then all are taken. Additionally, a ran-dom sub sampling was carried out in each household o a personbetween 7 and 17 years o age and another o one between 18and 60 years, and the module or individual surveys is used withthose sub sampling subjects and the rest o the members o thehousehold (0 to 6 and 61 and older). The results o this research areapproximations o the real fgures o the universe studied whichhas been set at 95% confdence level.

The Unidad de Atencin y Orientacin (UAO) is a physical sitewere the dierent institutions that make up the National Com-prehensive Assistance System or the Displaced Population orSistema Nacional de Atencin Integral a la poblacin desplazada(SNAIPD) are gathered

CityModule 1 Module 2

Displaced Residents Displaced ResidentsBarranquilla 598 601 2.055 1.732

Bogota 598 601 1.884 1.540

Cartagena 600 601 2.007 1.695

Florencia 605 604 1.883 1.572

Medelln 599 601 1.752 1.490

Santa Marta 598 601 1.916 1.667

Sincelejo 604 601 1.999 1.685

Villavicencio 599 601 1.955 1.687

Total 4.801 4.811 15.451 13.068

TableNo.1-Number o households interviewed and modules lled out


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Continues on the next page.


and the committees or community action (i.e.the Juntas de Accin Comunal) among others.

Additionally, there were 100 institutional visits andinterviews where the primary and secondary inor-

mation regarding the institutional response to theneeds o the displaced population was gathered.

The institutions are listed in Chart No. 3.

City Concentration Points

BarranquillaLa Luz-La Chinita, Santa Mara, Las Malvinas, Siete de Agosto, Evaristo Sourdis, Me Quejo,Cangrejera, Los ngeles-Pueblito y Pinar del Ro

BogotaEl Paraso, Jerusaln Potos, Caracol, Bella Flor, Sierra Morena I, El Divino Nio, Santa Fe, SanBernardino Potreritos, Los Laureles y Santa Viviana

Cartagena

Sector 11 de Noviembre en el Barrio Olaya Herrera, Sector Central 2 Barrio Olaya Herrera,Pozn Sector La Estrella, Pozn Sector 19 de Febrero, Los ngeles Nuevo Horizonte, Enequn,Villa Hermosa 24 de junio, Nelson Mandela Sector 2 Las Vegas, Nelson Mandela Sector 3Francisco de Paula 2 y Membrillal

FlorenciaIdema, Esmeralda, Palmeras, Piedrahita, San Judas, Bello Horizonte, Brisas del Hacha y NuevaColombia

MedellnSanto Domingo Savio No. 1, Popular, Manrique Central No. 2, La Cruz, Moravia, Villa Hermosa,Enciso, Caicedo, 8 de Marzo y 20 de Julio

Santa Marta Fundadores (Esmeralda y Oasis, Luis R. Calvo y Divino Nio), Timayui 1 y 2, Villabetel y La Paz.

SincelejoVilla Mady II Etapa, Uribe Uribe, Ciudadela la Paz, Divino Salvador, Villa Orienta, Invasin 20 dejunio, Cielo Azul, Incora Puerta Roja, Altos del Rosario y 17 de Septiembre

VillavicencioVilla Surez, La Nohora (sector 1, 2 y 3), Nueva Colombia 1 y 2, La Reliquia (sectores 1, 2, 3 y 4),Villa Juliana y Ciudad Pora.

ChartNo.2-Concentration Points o displaced population wherehousehold surveys were carried out

Municipal Institutions National Institutions

Fondo de Vivienda de Inters Social y Reorma Urbana(FOVIS) (Sincelejo) Agencia Presidencial para la Accin Social y la Cooperacin

Internacional (Accin Social) (Bogota, Medelln, Santa Marta,Barranquilla, Sincelejo, Florencia, Cartagena, Villavicencio)Instituto de Deportes y Recreacin de Medelln (INDER)(Medelln)

Metrovivienda y Fonvivienda (Bogota) Bancoldex (Medelln)

Personera Municipal (Sincelejo, Cartagena,Villavicencio) Deensora del Pueblo (Cartagena, Villavicencio)Polica Metropolitana (Medelln)

Secretara de Agricultura(Sincelejo)Fondo Colombiano de Modernizacin y DesarrolloTecnolgico de las micro, pequeas y medianas empresas(FOMIPYME) Medelln

Secretara de Educacin (Bogota, Medelln,Barranquilla, Florencia, Santa Marta, Sincelejo,Cartagena, Villavicencio)

Instituto Colombiano de Bienestar Familiar (ICBF) (Bogota,Medelln, Santa Marta, Barranquilla, Sincelejo, Florencia,Cartagena, Villavicencio)

Secretara de Gestin Social (Barranquilla), Secretara

de Bienestar Social, Secretara de Desarrollo Social(Medelln, Cartagena) y Secretara de ParticipacinCiudadana (Villavicencio)

Instituto Colombiano de Desarrollo Rural (INCODER)(Bogota, Medelln, Santa Marta, Cartagena, Villavicencio)

ChartNo.3-Organisations interviewed


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Municipal Institutions National Organisations

Secretara de Gobierno (Bogota, Medelln, Florencia,

Santa Marta)

Personera (Bogota, Medelln, Florencia, Santa Marta,

Barranquilla, Villavicencio)Subsecretara de Metromujer (Medelln) Procuradura General de la Nacin (Medelln, Cartagena)

Secretara de Planeacin (Medelln, Santa Marta,Cartagena)

Registradura Nacional del Estado Civil (Medelln)

Secretara de Salud (Bogota, Medelln, Barranquilla,Florencia, Santa Marta, Sincelejo, Cartagena,Villavicencio)

Servicio Nacional de Aprendizaje (SENA) (Medelln, SantaMarta, Sincelejo, Florencia, Cartagena, Villavicencio)

UAO (Bogota -Puente Aranda, Bosa, San Cristbal,Suba-, Florencia, Medelln, Cartagena, Villavicencio,Sincelejo, Santa Marta).

International OrganisationsAlto Comisionado de las Naciones Unidas para losReugiados (ACNUR) ( Barranquilla, Villavicencio)

Consejo Noruego para los Reugiados (Santa Marta)

Comit para el Desarrollo de los Pueblos (CISP) -Medelln-

Mdicos Sin Fronteras Espaa ( Florencia)

Comit Internacional de la Cruz Roja (CICR)(Subdelegaciones y ocinas de Bogota, Medelln,Florencia, Barranquilla, Villavicencio)

Mdicos Sin Fronteras Holanda (Sincelejo)

Handicap Internacional (Medelln)Programa de las Naciones Unidas para el Desarrollo (PNUD)(Villavicencio)

Programa Mundial de Alimentos (PMA) (SubocinasBogota, Medelln, Cartagena)

National Organisations

Corporacin de Ayuda Humanitaria (Medelln)Cajas de Compensacin: Comcaja (Santa Marta), Comaca(Florencia), Comenalco Antioquia (Medelln), Corem(Villavicencio)

Corporacin Minuto de Dios (Medelln, Santa Marta,Cartagena)

Corporacin Fondo de Apoyo de Empresas Asociativas(Coras) (Bogota)

Corporacin Regin (Medelln) Fundacin Franciscana Tomas Moro (Sincelejo)

Corporacin Manos de Amor y Paz Manapaz(Medelln)

Fundacin Picachos (Florencia)

Corporacin para la Vida Mujeres que Crean (Medelln) FUNDEBAN (Santa Marta)

Cruz Roja Colombiana (Santa Marta, Barranquilla,

Sincelejo)

Instituto Educativo Altos del Rosario (Sincelejo)

Fundacin SumaPaz (Medelln) Institucin Educativa Siglo XXI (Florencia)

Opcin Vida (Bogota y Barranquilla) Fundacin Juan Bosco Obrero (Bogota)

Proamilia (Bogota, Medelln, Florencia)Pastoral Social (Medelln, Barranquilla, Sincelejo,Villavicencio)

Universidad Nacional-Programa de Atencin Psicosocial

comes rom the previous page



Once the inormation was analyzed, the problem-atic topics per city were identied, which weredealt with in workshops with members and lead-

ers o the displaced population and through indepth interviews with various institutions. As canbe seen in Chart No. 4, the problematic nodescommon to the majority o cities are related to

the low level o psychosocial assistance, the lowparticipation rate in growth and developmentcontrol programs or children, the reasons or

dropping out o school, the share o householdsthat do not apply or the Families in Action pro-gram and the low rate o households that declareabandoned land.


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Node /City Barranquilla Bogota Cartagena Florencia MedellnSantaMarta

Sincelejo Villavicencio

High percentage o the displaced do not fle adeclaration

X X X

Ater fling the declaration they do not return tothe UAO

X

The time between the declaration and theregistration may take several months

X X

High level o rejection at the RUPD X X X

Very ew have received subsidies or housing X X

Low ood assistance X X

Problems in registering with the subsidizedhealth regime and a preerence or remainingcovered under the special regime reered to asvinculado.

X X X

Complaints due to quality in health care X X

Do not receive micro-nutritional supplements X X

Do not receive prescription drugs X X

Low participation in the growth anddevelopment control programs or children

X X X X X

Very ew people demand psycho-socialassistance.

X X X X X X

Complaints due to cost o education X X X

High drop out rate, specially in secondary school X X X X X

Very ew people receive training or economicincentives

X X X X

O the amilies eligible or the ProgramFamilies in Action, in spite o being awareo the program, one ourth o them does notregister or the assistance

X X X X X X

Those that declare having abandoned land donot know anything about what happened to theland

X X X X X X

ChartNo.4-Problematic nodes identied and treated in each City

A total o 18 workshops were held with the dis-placed community to discuss the nodes present-ed above: i) eight workshops with members othe displaced community at large, ii) eight withleaders o the displaced community, iii) one with

the indigenous population in Bogota and iv) onewith the aro Colombian population in Bogota. Atotal o 312 people participated in the workshopsas illustrated in Table No. 2.

The institutions with whom in depth interviewswere carried out to work out some o the prob-

lematic nodes are listed in Chart N. 5.


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to cross-reerence the criteria or analysis withthemes tackled (see Annex No.2)

The qualication table is a tool used to qualiy(green (works very well), blue (works well), yellow(requires improvement), orange (requires priorityattention), red (requires immediate attention))the results or each one o the issues tackledwith respect to coverage and access, timeliness,appropriateness, quality, sustainability andcoordination. This is accomplished through thereview o a series o quantitative and qualitativeindicators.

City

Population o the DisplacedCommunity

Leaders

Women Men Total Women Men Total

Barranquilla 16 5 21 7 11 18

Bogota 16 9 25 2 3 5Cartagena 6 8 14 17

Florencia 30 22 52 2 3 5

Medelln 7 12 19 3 10 13Santa Marta 18 4 6 10

Sincelejo 11 11 22 8

Villavicencio 32 22 54 11Total 118 89 225 18 33 87

TableNo.2-Number o participants per workshop

City Organisations

BarranquillaSecretara de Educacin, Secretara de Salud, Banco Inmobiliario, Secretara Social, OpcinVida , International Committee o the Red Cross

BogotaAccin Social , Pastoral Social, Secretara Distrital de Integracin Social, Personera Distrital(Derechos Humanos), Coordinador de la UAO, Secretara de Gobierno, World Food Programa,International Committee o the Red Cross

CartagenaAccin Social, Secretara de Educacin, Secretara de Salud, Children International,Corporacin Minuto de Dios, Personera del Pueblo, World Food Program

FlorenciaFundacin Picachos, la Caja de Compensacin del Caquet (Comaca), Secretara de Gobierno,Banco Inmobiliario o Housing, Pastoral Social, Unidad Territorial de Accin Social

MedellnSecretara de Bienestar Social -UAO, Unidad Territorial de Accin Social, Personera Municipal,Secretara de Educacin, Caja de Compensacin (Comenalco), World Food Program,International Committee o the Red Cross, Corporacin Ayuda Humanitaria

Santa MartaAccin Social (Programa Familias in Accin and Unidad Territorial), Secretara de Educacin,Secretara de Salud, Personera Municipal

SincelejoAccin Social, Secretara de Educacin (con dos uncionarios), Ocina de Planeacin (vivienda),Personera Municipal, Fundacin Toms Moro

VillavicencioAccin Social, Secretara de Gobierno, Secretara de Educacin, Secretara de Salud, PastoralSocial e Instituto Colombiano de Bienestar Familiar

ChartNo.5-Institutions subject to in depth interviews

Finally, on the basis o the conceptual rame-work, an analysis was perormed integrating theollowing elements: i) the survey o the house-

holds which describes the characteristics, needsand perceptions o the population, keeping thehousehold15 as the unit o analysis, ii) second-ary inormation associated with the institutionalresponse oered by the actors that provide as-sistance to the displaced population in the cities,iii) qualitative inormation obtained via the work-shops with the community and leaders and iv) thein depth interviews with the institutions. As parto the analysis, a qualication table was designed

Although socio-demographic data related to issues such as educa-tion, health and income generation were gathered at an individuallevel, results were aggregated at a household level when analy zingthe data. Only in the case o school attendance and occupationrate were the results maintained at an individual level.


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Although the assistance to the displacedpopulation is a responsibility o the State, giventhe constitutional mandate that governs the

duties o the territorial institutions in Colombia,the success o a comprehensive response in avoro the displaced population is contingent onterritorial institutions, municipal or departmental,identiying the key actors and dening clearlythe responsibilities and complementary roles thatmust exist between the policies and actions o thenational, provincial and municipal jurisdictions. Thisraming o responsibilities must be accompaniedby an ecient coordination system among theinstitutions o the dierent territorial levels.

This aorementioned consideration is one o therst that municipal administrations must have inormulating their policies and actions towards thedisplaced population in order to avoid a duplica-tion o eorts o the national state institutions.This applies particularly to the work o AccinSocial, the Procurator General o the Nation, thePeoples Ombudsman, The Colombian Instituteor Rural Development (INCODER), Ministry oSocial Protection, Ministry o National Education,the Ministry o the Environment, the Housing

and Territorial Development agency, the NationalLearning Service (SENA), the Colombian Instituteo Family Welare (ICBF) and other institutionsthat are in charge o programs and actions in thisarea. What must be sought by the managemento the territorial level is coordination, comple-mentarities and the creation o synergies.

Another important aspect in the coordination be-tween the national and the local (municipal) levelis eciency, timeliness and transparency with thenational resources that are allocated to municipal-ities or distribution. The problems aced by manymunicipalities with regards to the attribution ounds and their timely distribution has revealed


3. Generalrefections


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how small the share o resources that actuallygets to the vulnerable population is in compari-son with the theoretical calculations stipulatedin the institutional design. This can be seen orexample with the unds allocated by the GeneralSystem o Participations (SGP)16.

In light o this situation, civil societies oversighto management practices contributes to the im-provement o public policies in avor o the vul-nerable and displaced population in particular.

Besides the Coordination o policies and actionsamong the territorial levels, it is necessary that in

the cities there be two specic elements in orderor the care provided to the displaced populationto contribute to a better livelihood. The rst, andperhaps most important, is that the Municipal Ad-ministration states explicitly that assistance to thedisplaced population is a priority. In other words,that there is a political will to provide priority careto this population. The second element is that thecity has the ability to provide social services and togenerate opportunities or economic stabilizationto those who remain in the cities. All o this, with-out minimizing the importance o considering the

possibilities o returning.

These two considerations are undamental whenanalyzing the situation o the displaced popula-tion among the dierent cities in the country, andwhen comparing the dierent quality o lie indi-cators o the displaced households. Currently, animportant issue or civil society institutions thatwork in avor o the displaced population is in-sisting among the new municipal administrationsthat specic budget lines or the assistance to the

displaced population be explicitly incorporated intheir development plans.

As or the programs and projects that exist orthe displaced population it is undamental thatthose oriented towards emergency assistancebe coordinated with those or economic stabi-lization, to ensure the absence o a void in the

The 715th Law regulates the Sistema General de ParticipacionesSGP (created with the Legislative Act 01 o 2001). The SGP is asystem in which the Nation transers unds to the territorial institu-

tions to fnance services such as education, health, potable waterand basic sewage and to fnance the jurisdictional competencies de-signated to the provinces, the districts and municipalities in the Law(public utilities, housing, arming sector, transport, environment,reclusion, sports and recreation, culture, prevention and attentionto disasters, etc. Articles 74 to 76 o that Law).

transition. This will lead to a more holistic as-sistance oriented towards the building o hu-man and economic capital among the displacedhouseholds. In this respect it is indispensable thatthere be support programs or income genera-tion complemented with other social programs(i.e. subsidies whether conditional or not, hous-ing, ood security, etc.) geared towards break-ing poverty traps and improving livelihoods.

Income generation is the result o the confuenceo actors, some at the micro household leveland others at the macro environmental level. Interms o micro actors, according to the voca-

tions, the will and the capabilities o the house-hold members, work around actions geared to-wards entrepreneurial development and increas-ing the level o employability is needed. In termso macro actors there must be local, regionaland national growth dynamics. In this sense,support in income generation involves not onlythe public sector but also private industry, whichin a country like Colombia is the main player interms o generation o income and employment.

With respect to actions geared towards increas-ing entrepreneurial development o the displacedhouseholds, one should seek not only to improvethe productivity o micro-enterprises, but alsoendeavour to create networks between ormalprivate industry and microenterprises. Such net-works could be sustained through productionsschemes such as maquilas or outsourcing.

As or increasing the employability o displacedhouseholds, working with the private industry is

undamental in generating capabilities that are inline with market needs. Thus assistance schemesor displaced households must have a trainingcomponent that is complemented by an appren-ticeship in order to increase their chances o nd-ing stable employment.

In all these actions one must be aware that agreat limitation or permanent hire or even orthe success o individual start-up micro-enter-prises is the very low educational level o the

heads o the displaced households. This limi-tation can be compensated in part by trainingthat is well tted to their educational level andjob possibilities, accompanied by a greater level


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o awareness that industry must have in termso social responsibility towards these people.

The time is right to work in the design and imple-mentation o public and private alliances given thecurrent macroeconomic growth and the growthperspectives or the near uture, as well as theimportant development in terms o corporate so-cial responsibility. At the regional level it is unda-mental to work with the most dynamic economicsectors while adjusting to the entrepreneurialactivities o each municipality, whether it is agroindustry, textiles, services, construction or other.

Thereore, it is at this level that the actions o themunicipal administrations become crucial, sincethey are the ones best suited to sensitize regionalinstitutions and companies to the need to createdirect or indirect links with people or micro-enter-prises that belong to displaced households. Theselocal actions must also extend to the neighbor-ing municipalities with productive potential so asto consider alliances with private industry in theramework o possible relocation options. All ac-tions must be articulated with the existing income

generation programs or displaced households.

When refecting on assistance policies or in-come generation, rom both a training and la-bor practice perspective, a gender sensitive o-cus must be maintained. The appropriatenesso interventions is imperative. For example, inthe case o households headed by a woman ora man without a spouse, means o linking thispopulation to the labor market or supportingmicro-entrepreneurship should be accompa-

nied by assistance programs or their children.

Furthermore, a comprehensive psychosocial assis-tance with a holistic perspective, that includes as-pects such as orientation, literacy, empowermentalong with more specialized activities related tothe mental health, should be the overarching o-cus o the entire assistance process. This includesemergency humanitarian assistance, schooling,and programs or income generation. Psychoso-cial assistance is a crosscutting issue that concerns

each one o the interactions with the populationas o the rst contact. This implies that each in-dividual who plays a role in the services providedto the displaced population, rom the people re-

sponsible or registering them in assistance pro-grams to the representatives o institutions, isresponsible or creating an environment whichis conducive to the respect o human dignity.

This cross-cutting approach to assistance shouldbe geared towards people developing their po-tential and their capabilities where one identiesthe subject o the assistance as a social player,co-responsible or the reconstruction o his per-sonal, amily and communitys uture, leaving hisor her categorization o victim to the legal process,but moving orward in flling requirements o thepsychosocial categorization o a community play-er17. In this perspective, all o the systems insti-

tutions and their employees should strive towardsan assistance that strengthens displaced house-holds outlook o their uture and empowers themas inhabitants o their new living environment.

This also implies that the people providing assis-tance, at all levels have inrastructure conditionsthat are comortable and sucient, are providedwith psychosocial support, work security andhave specic training on the system o assistanceor the displaced population.

MILLN, Hernando. the psychological assistance: ocus, method-ologies, and its strengths and weaknesses. In: USAID, OIM, SocialSolidarity Network. Seminar-Workshop: Psychological assistanceto the displaced population. Balance o the progress made on thefeld o the building o an enhancement agenda. Bogota, July 8th,9th, 10th and September 17th o 2002. Page 11


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0A review of the displaced population in eight cities of Colombia: local institutional



4. Results orthe eigthcities

This chapter presents a summary o the majorndings on the needs o and the assistance tothe displaced population, comparing them withthe resident population. First, an introduction ispresented with inormation concerning the cit-ies, ollowed by an overview o institutions thatprovide assistance to the displaced population,the assistance cycle, a summary o the charac-teristics o the population in terms o the livingconditions, as well as the institutional responseto the conditions o the displaced popula-tion or each one o the eight topics analyzed.

The cities selected or this review o the local in-stitutional response, living conditions and recom-mendations or the assistance to the displacedpopulation were Barranquilla, Bogota, Cartagena,Florencia, Medelln, Santa Marta, Sincelejo andVillavicencio, which are presented in the map No.1. The cities were selected as per the ollowingcriteria: i) cities o dierent population sizes andlevel o development, ii) cities that receive a highnumber displaced population, iii) in the case othe Atlantic Coast, cities where the displacementphenomenon may not be so visible as a result otheir tourism industry, iv) cities not included inother studies on the displaced population, v) cit-ies where one or both ICRC and WFP organiza-tions are present.

According to the 2005 census, carried out by theNational Statistics Department (DANE), these cit-ies have a total population o 12 million people,which is equivalent to 30% o the countrys to-tal population. These gures are presented in theTable No. 3.

City Total Urban Area% of population

in urban area

Barranquilla 1.113.016 1.109.067 99.6%

Bogota 6.778.691 6.763.325 99.7%

Cartagena 895.400 845.801 94.4%

Florencia 142.123 120.403 84.7%

Medelln 2.223.660 2.187.356 98.3%

Santa Marta 414.387 384.189 92.7%

Sincelejo 236.780 218.430 92.2%

Villavicencio 384.131 361.058 93.9%

TableNo.3

Total Population o the Cities

Source: DANE, 2005 Census

TotalPopulationo theCities


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MapNo.1-Locationofthecitiesincludedinthestudy

Source: ICRC 2007 - Atlas o Colombia. -Instituto Geogrfco Agustn Codazzi - 2007

Barranquilla

Cartagena

Santa Marta

Sincelejo

Medelln

Bogota

Villavicencio

Florencia

Among these cities are included the most eco-nomically dynamic ones o the country, which areBogota and Medelln. The main economic activi-ties in these cities are summarized in Chart No. 6.

These cities are also eight o the nine 18main recip-ients o displaced population, Bogota being themost important, ollowed by Medelln, Sincelejoand Santa Marta, as illustrated in graph No. 1.

Valledupar is the fth recipient of displaced population in thecountry with a population of 51 thousand people registered in

the RUPD (February 2007). This city was not included in this

study.

Source: Development Plans o the Cities, reports rom theChambers o Commerce, DANE.

Ciudad Economic Activity

BarranquillaCommerce, services, industry andmaritime and fuvial port.

Bogota Main industrial and service center o thecountry.

CartagenaIndustry, commerce and services.Tourism maritime and fuvial port.

FlorenciaSmall companies o commercial nature,services and livestock arming activities.

Medelln Manuacturing, services and commerce.

Santa MartaCommerce and services. Tourism,maritime and fuvial port.

SincelejoLivestock arming and agriculture in therural areas and commerce.

Villavicencio

Commerce, agriculture (in the rural area),

livestock arming (in the rural area) andoil exploitation (Apiay oil eld).

ChartNo.6-Main economicactivities per city


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The displacement problematic, in relative terms, ismeasured by calculating the pressure index, whichcorresponds to the ratio between the displacedpopulation and the total population. For moreprecision with regards to the pressure on thesocial services the ratio between the displacedpopulation and the population with unsatisedbasic needs (NBI) is calculated19. Graph No. 2

illustrates the total pressure index as well as the

pressure index with regards to the populationwith NBI. As illustrated in the graph, the order othe cities in relation to the pressure index changeswhen taking into account the population withNBI rather than the total population. Bogota, orexample, moves rom the rst place in absolutenumbers to the last one in relative numbers andFlorencia20 and Sincelejo become the cities with

higher pressure.

Source: Accin Social, RUPD February 2007

Graph No. 1 -Number of displaced population registeredin the RUPD in eigth of the nine most receiving cities of Colombia

Cities

150.012

95.552

77.918

69.958

45.17443.529 41.779 40.201

-

20.000

40.000

60.000

80.000

100.000

120.000

140.000

160.000

Bogot Medell n Sincelejo Santa Marta Cartagena Vi llavicencio Florencia Barranquilla

Numbersofpersons

It is considered that a household or persons fnd themselves withUnsatisfed Basic Needs (NBI-Necesidades Bsicas Insatisechas),when at least one o the fve ollowing characteristics is present:1) Inadequate Housing: with dirt ooring or poor wall material, 2)

Housing without utility services: household without aqueduct wa-ter or in urban areas, without connection to sewage or septic tank,3) Critical overcrowding: number o people per room higher thanthree, 4) School non attendance: household with boys and girls o7 to 11 years o age who do not attend school.

0 In the case o Florencia, the number o displaced people registeredsupersedes the total o the population with NBI reaching a pres-sure index on NBI o 140%. According to the municipal authoritie s,although 41 thousand people are registered, only 15 thousandremain in the town (Interview with the Florencia Majors Ofce,March 2007). Taking this 15 thousand as the total number o peo-ple displaced, the pressure index on the population with NBI wouldbe 50%.


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4.1 InstItutIonal

organIzatIon

for

the

assIstancetothedIsplacedpopulatIon

According to the regulations that govern the as-sistance to the displaced population in Colombia,at the territorial level, the Territorial Committees(i.e. departmental, municipal and district ones)o Comprehensive Assistance to the Displacedpopulation, are the highest authority or inter-in-stitutional Coordination o the National System oComprehensive Assistance to the Displaced Pop-

ulation (SNAIPD- Sistema Nacional de AtencinIntegral a la Poblacin Desplazada). In these com-mittees policies are identied, planned, put intooperation and ollowed up through the UniedComprehensive Plan (PIU-Plan Integral nico)21.

In the cities covered by the study, The RegionalCommittees o Comprehensive Attention to theDisplaced Population (CLAIPD), which in somecases are reerred to as municipal (CMAIPD) like

The law 250 dated 2005 introduces the Unifed ComprehensivePlans (PIU-Planes Integrales nicos) as the tool that integrates theactions as o the intervention phases and the strategic lines, involv -ing the prevention and contingency plans or emergencies and theoperational plans o the dierent programs and projects that arecoordinated at the territorial level.

in Villavicencio and Florencia, in others as dis-trict (CDAIPD) like Bogota, Barranquilla, Carta-gena and Santa Marta and in others as local(CLAIPD) like in Medelln, were constituted as o1998. Institutions participating in these commit-tees are, among others, the Mayors oces, Ac-cin Social, the Public Ministry (Procuraduria, De-ensora del Pueblo and Personera), the NationalLearning System (SENA), the Colombian Instituteo Family Welare (ICBF), the Colombian Instituteor Rural Development (INCODER) and in someinstances, the police and military (their humanrights divisions). In the committees o some cities,the representatives o the displaced populationalso have a seat. The majority o cities also havethematic working groups. The PIU, as a planningand ollow up tool, exists in Bogota, Medelln andSincelejo.222324

UAOs have been constituted in all the cities o thestudy. As shown in Chart No. 7, the UAOs with amajor institutional presence are ound in Bogota,Florencia and Sincelejo.

In the chart, some o the characteristics o theCommittees, the PIUs, the UAOs and some budgetelements that were available at the time o the

visits to the Cities, have been summarized.

Source: Calculationbased on inormation rom Accin Social, RUPD February 2007, projection o the NBI rom the 2005 Census andtotal population o the 2005 census.

Graph No. 2 -Pressure Index with respect to the total population and the population with NBI

0%

20%

40%

60%

80%

100%

120%

140%

Florencia Sincelejo Villavicencio Santa Marta Medelln Bogot Cartagena Barranquilla

Index PDI/PT

Index PDI/PNBI


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Cities Committee Has a PIU Characteristics of the UAO Budget elements22

Barranquilla

CDAIPD does notmeet regularly and

shows difculties inbeing a planning,coordinating andollow up committee.

No(in development)

There is one UAO and it supported by the Mayors Ofce.The UAO is located ar rom the displaced population and

was closed rom March to June o 2007 due to locationproblems. Presents technological shortcomings. Haspresence rom the Public Ministry, Accion Social and theMayors Ofce.

No inormation was available onthe budget to assist the displacedpopulation, nor rom the UAO. TheCity is under the ruling o Law 550o 199923.

Bogota

CDAIPD is dynamicand operatesas planning,coordinating andollow up committee.

Yes

Five UAO: Puente Aranda which was the frst to beconstituted, Cuidad Bolvar, Bosa, Suba and San Cristbal.They are all supported by the Mayors Ofce. Presenceo the Majors Ofce, Accin Social and its operator oremergency humanitarian assistance, thePublic Ministry,la Personera Distritral, ICBF and the SENA.Presentstechnological Shortcomings.

According to the GoverningSecretariat o the Mayors ofce,the budget to assist the DisplacedPopulation is $6.5 billion (US$3.37million) in 2007.

Cartagena

CDAIPD was nooperational until2006. It is nowdynamic and hasworking groups ordiagnosis andollow-up.

No(in development)

There is one UAO and it supported by The Mayors Ofce.Located in the Getseman neighborhood (ar rom thedisplaced population). Presence rom the Public Ministry,Accin Social and the Majors Ofce. Presents defcientinrastructure, technological weaknesses.

According to the Secretaryo Participation and SocialDevelopment (Secretara deParticipacin y Desarrollo Social),the budget to assist the displacedpopulation is $1.05 billion pesos or2007 (US$545.5 million).

Florencia

CMAIPD operatesas a planning,coordinating andollow up entity.

No(in development)

One UAO central and readily accessible. The Mayors Ofce

assumes the commitment with the UAO. Presence rom thePublic Ministry, Accin Social, Universidad de la Amazona,the Governors Ofce and the Mayors Ofce and a non-permanent presence o the Secretary o Public Health, ICBF,SENA, Proamilia.Presents technological shortcomings.

According to the GoverningSecretariat o the Mayors ofce,they count on $77 million pesos (40thousand dollars) to fnance theUAO or 2007

Medelln

CLAIPD operatesas a planning,coordinating andollow up entity.

Yes

There is one UAO and it is supported by The Majors OfceIt is not centrally located and access is difcult or thedisplaced population. It has presence rom Accion Social,the Majors Ofce, CAH and CISP, and a non-permanentpresence rom ICBF and SENA. The Public Ministry is notpresent. Presents technological shortcomings.

According to the Secretary o SocialWelare, in 2006 they had a budgeto $1.3 billion pesos (US$611 milliondollars) to implement the Agreemento assistance to the displacedpopulation24.

Santa Marta

CDAIPD operatesas a planning,coordinating andollow up entity.It meets every twomonths.

No(in development)

There is one UAO and it supported by the MajorsOfce. Located in a popular area, but ar rom the mainconcentration areas o displaced population. Presence romthe Public Ministry, Accion Social, the Mayors Ofce andthe Norwegian Reugee Council.Presents technologicalshortcomings.

There was no inormation availableon the budget to assist the displacedpopulation. The city is under theruling o the Law 550 o1999.

Sincelejo

CMAIPD asa planning,

coordinating andollow up entity.

YesUna UAO. Alcalda asume compromiso con la UAO. La UAOes central y de cil acceso. Tiene presencia del MinisterioPblico, Accin Social y Alcalda. Defciencias tecnolgicas.

There was no inormation availableon the budget to assist the displacedpopulation

Villavicencio Regular basisNo (provincial PIUin development)

There is one UAO and it supported by the Majors Ofce.The UAO is central and easily accessible. It has presencerom the Public Ministry, Accion Social and the MayorsOfce.Presents technological shortcomings.

The UAO benefts o a strengtheningproject supported by the GovernorsOfce o Meta, The Majors Ofce oVillavicencio and Accion Social ora total value o $1.38 billion pesos(US$717 million dollars).

due to location problems.Presents technological shortcomings.

due to location problems.Presents technological shortcomings.

Source: ICRC-WFP, 2007 Prepared on the basis o the feld work with the institutions

ChartNo.7-Summary o some characteristics o the Assistance System or displaced population

In the cities where inormation on the budget al-located or assisting the displaced population wasavailable, such as Bogota, Medelln and Carta-gena, there was a clear increase in resources or2006 and or 2007. These local budget increasesalso refect the signicant increase in budget al-location or assisting the displaced populationcarried out at a national level. In this sense, thenational investment or assisting the displacedpopulation between 1995 and 2002 was o$566.6 billion pesos25 (US$294 million dollars),which is equivalent to an annual average amounto $ 70.8 billion pesos (US$ 36.8 million dollars);

while between 2003 and 2004 it was o $439.6billion pesos (US$228 million dollars) or an an-nual average o $ 219.8 billion pesos (US$114.0million dollars) and in 2007 the budget allocationincreased to $850 billion pesos (U$441.5 milliondollars)26.

Based on the secondary inormation gatheredand the interviews carried out in the cities, insti-tutional maps were built presenting the public in-stitutions that are part o the SNAIPD as well asthe national and international organizations thatcarry out activities in avor o the displaced popu-

Cooperation Contract No. 4700023319 o 2006 signed by Accin

Social, la Unin Temporal Alianza PIU 2006 and Medellins Secreta-ry o Social Welare

For Medelln, the exchange rate used is the average o February2007 that corresponds to $2200 pesos per dollar and or the resto the Cities that o June 2007 corresponding to $1925 pesos perdollar, Republic Bank o Colombia.

To comply with Law 550 o 1999 implies, or the municipality, tohave a liability restructuring agreement that commits up to 50% oits budget with its creditors. This situation hinders its public activi-ties. See http:// www.dap.gov.co/leyes/L0550_99.HTM

It reers to pesos in 2005. Source: CONPES document 3400, page 6.

Interview with Accin Social, 2007.


25/86


lation as per their mandates and social mission.In general, there are seven major players thatcontribute to assisting the displaced population,with variations between the cities depending onthe institutions presence and the local dynam-ics. These are: the Mayors Oce, Accin Social,the Public Ministry (Procurator Generals Oce,the National Ombudsman (Deensoria del Pueblo)and Personera), other authorities representingthe National Government, international organiza-tions, national organizations and grass root orga-nizations. The institutional maps built in the eightcities, constitute a rst drat that may help eachcity to identiy the actors who participate in theassistance or the displaced population and may

help in improving the coordination among them.

4.2 assIstance cycle forthedIsplaced

populatIon

In this study, an eort was made to speciy thesequence o assistance in each one o the cities,which is outlined in diagram No. 2. In generalterms with specicities per city, a displaced am-ily initiates the entry process into the system bygoing or the rst time to the UAO where they

receive the necessary inormation to access theservices. They are then directed to one o theInstitutions rom the Public Ministry (ProcuratorGenerals Oce, the National Ombudsman andPersonera) that in the majority o the cities op-erates out o the UAO, where a declaration odisplacement is taken. Once the declaration hasbeen led, they are requested to return to theUAO ater 15 working days to veriy i they wereincluded in the RUPD. In the event that thosemaking the declaration are either pregnant wom-en, or with malnourished children, or in a highlyvulnerable state, they are sent to the organizationCommunity Habitat and Finance (CHF)27 or to theMayors Oce (according to the City) in order orthem to receive immediate assistance (ood and

accommodation).

In general, the declarations o displacement takeone or two days to reach Accin Social. Theyassess the declaration and determine whetherthe amily shall be included or not in the RUPD.

As o mid 2005, Accin Social, by means o cooperation and co-unding agreement signed with the international organizationCommunity Habitat and Finance (CHF), has been carrying out theSupport Program or the displaced population, which consists othe subprograms: Program o Humanitarian Assistance (PAHU) andthe Program o Financial Assistance (PAE).

These proceedings can take between 15 work-ing days (stipulated by the law) and severalmonths, depending on the city. I the amily isnot accepted in the RUPD, they have the pos-sibility to appeal; such a process takes 80 days.

The amily that gets included in the RUPD is sentimmediately by Accin Social to CHF or the Hu-manitarian Assistance Program (PAHU) in order toreceive emergency humanitarian assistance (AHE)that is comprised o psychosocial assistance, ood,hygiene kits, essential household items (kitchenkit, mattresses or hammocks and blankets), rentsubsidies and economic incentives. It takes about

one week rom the moment the operator receivesthe RUDP listings up to the time the amily re-ceives the rst delivery o AHE. Delivery o oodand rent subsidies is made every three months,extendable according to the vulnerability statuso the household. The hygiene kits and essentialhousehold items are delivered once and the psy-chosocial assistance is provided through severalworkshops during the three months o assistance.

With the inclusion in the register, the amily canle their request or land protection with the IN-CODER, register in the program Families in Ac-tion (Familias in Accin)28 (as long as there areopenings to apply or the program), enter into theICBFs programs, receive vocational training romthe SENA, apply or the national housing subsidy,and rely on the benets they receive as part o thehealth and education assistance system.

Conditional subsidy programs geared at SISBEN population 1 and 2 anddisplaced population. Nutritional subsidies are provided in theamount o $46 thousand pesos (US$23 dollars) per month orhouseholds with boys and girls younger than seven years o age

and education subsidies o $14 thousand pesos (US$7.3 dollars) permonth or each child in elementary school and $28 thousand pesos(US$14.5 dollars) per month or each child attending secondaryschool. Co-responsibility is expected in the orm o school atten-dance as well as growth and development check ups or childrenunder fve years o age. Accin Social, 2006.


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Furthermore, the ICRC assists (either directly or bymeans o an operational cooperation agreementwith the Colombian Red Cross) in an indepen-dent and autonomous ashion, the populationunder condition o displacement, whether it isregistered or not in the RUPD. The ICRC assistsdirectly in Bogota, Medelln and Florencia and bymeans o an operational coordination agreementwith the Colombian Red Cross in Sincelejo andVillavicencio.

While implementing its activities and in order tosupply better assistance to the displaced popula-tion, the ICRC works to improve coordination in

4.3 characterIzatIonofthedIsplaced

populatIonIntermsoflIvIngcondItIons

The assistance process aces a great challengein light o the critical structural and conjunctur-al poverty o displaced households. The qualityo lie o the displaced households, measured

through the ICV (Quality o Lie Index as per itsinitials in Spanish), shows that they suer greaterstructural poverty than the resident householdsstudied, as illustrated in Table No 4. The share o

The PAE program consists in providing fnancial aid orinitiating or strengthening a small business accompaniedwith training and advisory support in the ramework o thecooperation and co-fnancing agreement entered into withCHF, Support Program to the displaced population.

order to avoid duplication and to ensure compli-mentary emergency humanitarian assistance.

When inormation was gathered or this report(March 2007), the amilies whose emergencyhumanitarian assistance was ending were beingtranserred, in accordance with requirements andavailable openings cupos, to the EconomicAid Program (PAE)29, which generally lasted ourmonths. As o June 2007, amilies assisted bythe PAHU program moved automatically to thePAE program that includes psychosocial andoccupational support.

Does not le declaration

Declaration: Institutionsrom the Public Ministrythat may or may not be

in the UAO

Public Ministry orwardsdeclaration toAccin Social

Accin Socialevaluatesthe declaration

Accin Socialsendslisting toAccin Social-

CHF operator andSecretaries o Healthand Education

It is accepteden el RUPD It is not acceptedin the RUPD

Appeal and in secondinstance

AHE byAccin Social-CHF

operator

Assistence in education,health, land protection,training, housing and

Families in Actionprogram

High vulnerability casesare identied

Remit toAccin Social-CHF operator or

immediate assistance

AHE romICRC

Displacement

DiagramNo.2-Assistance Cycle or the Displaced Population

Source: ICRC-WFP, 2007 Prepared on the basis o the feld work with the institutions

displaced households below the ICV minimumstandard line (67 points) is especially high in citieslike Cartagena, Santa Marta, Florencia and Villav-icencio and in the case o the resident households

in Cartagena.


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City% o displaced

households

% o resident

householdsBarranquilla 65% 40%

Bogota 38% 18%

Cartagena 86% 73%

Florencia 71% 45%

Medelln 63% 36%

Santa Marta 74% 30%

Sincelejo 56% 50%

Villavicencio 70% 57%

Table No. 4 - Proportion o house-holds under the minimum ICV line

The dierences between the two populations are signifcant at 95%.Source: ICRC-WFP, 2007

In terms o conjunctural poverty o the house-holds, measured as the total o expenses percapita o the household in relation to the reer-

ence poverty line30 and the extreme povertyline31, one can conclude that all the householdsincluded in this study are poor (99% o the dis-placed persons and 96% o the residents, this isnot a statistically signicant dierence). However,

the statistically signicant dierences are identi-ed at the most critical level o poverty (line oextreme poverty- indigencia) where the dis-placed households show more relative poverty incomparison to the residents. The percentage odisplaced households under the extreme povertyline is especially high in cities like Medelln, Flor-encia, Barranquilla, Cartagena and Villavicencioas illustrated in Table No 5.

0 Its calculated by setting consumption standards or expen-ses dierent rom ood, like housing, clothing, transport,health, education among others, or multiplying the extremepoverty line by the relation between the total consumptionand the consumption o ood observed in the reerencepopulation.Measurement methodology and the magni-tude o poverty in Colombia. National Planning Depart-ment (DNP), Feb.2006. Page. 22. The poverty line was setat $252.515 pesos (US$131 dollars) rom the DNP (MERPD)and it was updated with prices rom December 2006 whichresulted in a sum o $265.141 pesos (US$137 dollars).

Its calculated setting a standard o consumption or ex-penses related to the ood basket consumption that shouldsatisy the pattern o nutritional needs at a minimum cost

and respect the consumption habits o the reerence popu-lation. The extreme pover ty line value was taken at $97.840pesos (US$50.8 dollars) rom the DNP (MERPD) and it wasupdated with prices o December 2006 which resulted in avalue o $102.732 pesos (US$53.37 dollars).

This situation is also refected in the variablesrelated with poverty. As Tables No 6 and 7 show,the displaced households o these cities consist oa greater number o persons (around ve), havea higher number o boys and girls younger than6 and 12 years o age (between 1.3 and 1.5), theaverage age o their members is lower (around22 years), and they have a greater economic

dependence level, which entails a lower share opeople working in respect o the total numbero persons o the household (between 0.22and 0.24). They also have a higher number opregnant and/or nursing women and have ahigher incidence o women as single parentso the households in comparison with residenthouseholds (around 30% o the households have

a woman as a single parent)32.

City% o displaced

households

% o resident

householdsBarranquilla 78% 61%

Bogota 66% 40%

Cartagena 75% 62%

Florencia 80% 58%

Medelln 81% 56%

Santa Marta 65% 48%

Sincelejo 60% 50%

Villavicencio 73% 57%

Table No. 5 - Proportion o householdsunder the line o extreme poverty

The dierences between the two populations are signifcant at 95%.Source: ICRC-WFP, 2007

The proportion o displaced single headed households thatare headed by women was higher than 90% in all the ci-ties, while the share o displaced single headed householdsthat were headed by man was lower than 10% in all thecities


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City

Proportion o households withpregnant women

Proportion o households withnursing women

Proportion o households headedby women

Displaced Residents Displaced Residents Displaced Residents

Barranquilla 11.85% 9.14% 32.58% 23.90%** 30.83% 24.36%*

Bogota 9.88% 7.2%* 33% 17.2%** 33.2% 32.2%

Cartagena 11% 7.0% 38% 25.5%** 21% 22%

Florencia 24.5% 15.9** 25% 15.98%** 37% 32%

Medelln 20% 15.9%** 16% 14% 42% 36%*

Santa Marta 27% 23% 27% 23% 27.1% 38.34%**

Sincelejo 26% 20% 26% 19.72%* 26% 29%

Villavicencio 8% 4.9%* 33% 20.93%** 33% 34%

Table No. 7 -Percentage o households with pregnant and/or nursing women and witha woman as head o household

* The dierences between the two indicators are signifcant at 90%.

** The dierences between the two indicators are signifcant at 95%.

Source: ICRC-WFP, 2007

On the basis o an econometric exercise, the dis-placed households were grouped according tothe similarities in results o each ICV variable.Through the multidimensional scaling method,groups o households were established with simi-lar characteristics within each one o them. Thesegroups consist o an approximation to householdswith relative low, medium and high level o liveli-

hood. In all the cities, with the exception o SantaMarta, the exercise resulted in three groups. Incities like Cartagena and Santa Marta, the ICVaverage o the high group ailed to reach the

minimum ICV standard o 67 points. The tableNo 8 shows the average ICV score and the per-centage o households in each group and the ICVvariables that dierentiate them.

City

Average number

o persons perhousehold

Average numbero boys and girls

under 6 yearso age

Average numbero boys and girls

under 12 yearso age

Average age o the

household members

Rate o economic

dependence33

Displaced Residents Displaced Residents Displaced Residents Displaced Residents Displaced Residents

Barranquilla 5.32 4.59** 1.62 1.39** 1.53 1.21** 22.7 25.3** 0.22 0.24*

Bogota 5.00 4.10** 1.50 1.32** 1.52 1.21** 22.29 27.02** 0.21 0.26**

Cartagena 4.99 4.49** 1.72 1.4** 1.53 1.17** 21.53 22.50 0.25 0.26

Florencia 4.68 3.99** 1.5 1.35** 1.40 1.04** 23.23 27.26 0.22 0.25**

Medelln 4.99 4.13** 0.9 0.55** 1.29 0.81** 20.67 24.81** 0.24 0.31**

Santa Marta 4.99 4.42** 1.58 1.38** 1.41 1.21** 22.46 22.31** 0.24 0.26*

Sincelejo 5.19 4.65** 1.50 1.35** 1.29 1.09** 24.57 24.97** 0.23 0.25Villavicencio 5.00 4.14** 1.66 1.44** 1.50 1.16** 23.00 27.17 0.22 0.26**

TableNo.6-Socio-demographic variables o displaced and resident households

* The dierences between the two indicators are signifcant at 90%.** The dierences between the two indicators are signifcant at 95%.

Source: ICRC-WFP, 2007

Reers to the ratio between working members o the house-hold and the total number o household members. As thevalue decreases, the dependence gets higher.


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City Groups Average ICVPercentage ohouseholds

ICV variable that dierentiates the groups

Barranquilla

Low 45.84 34.2%The group o high livelihood supersedes the other two groups in nearly all aspects.The major dierences between the low livelihood group and the high one areound in the ollowing ICV variables: uel or cooking, waste collection, eliminationo sewage, foor material and overcrowding.Similarly, the low schooling level o the emale or male head o household and othe youth is apparent in the medium group

Medium 62.76 34.6%

High 72.95 31.2%

Bogota

Low 57.69 15.0% The group o high livelihood supersedes the other two groups in nearly all aspects.The major dierences between the group o low livelihood and the high one areound in the ollowing ICV variables: the schooling level o the emale or malehead o household and o the youth.

Medium 65.76 47.9%

High 77.48 37.1%

Cartagena

Low 43.67 41.2% The group o high livelihood supersedes the other two groups in nearly all aspects.The major dierences between the low livelihood group and the high one areound in the ollowing ICV variables: wall and fooring materials o the house,proportion o children in the household, schooling level o the youth and emale ormale head o households, and uel or cooking.

Medium 53.37 29.8%

Alto 62.61 29.0%

Florencia

Low 49.73 41.2% The group o high livelihood supersedes the other two groups in nearly all aspects.

The major dierences between the low livelihood group and the high one areound in the ollowing ICV variables: schooling level o head o households andyouth, school attendance o the youth and uel used or cooking.

Medium 62.75 24.2%High 68.94 34.6%

Medelln

Low 51.26 25.1% The group o high livelihood supersedes the other two groups in nearly all aspec

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