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Spanish Version | Report July 2001 in Spanish

Situation of displaced persons and challenges for 2001

"The rest of the Colombian population is hardly aware of the forced displacement of people that has occurred and is occurring in the country. That is why such displacement has been called a silent and clandestine process. However, society has to acknowledge the humanitarian tragedy facing the country before the hundreds of thousands of displaced Colombians can be cared for. That is the only way of involving all Colombians in efforts to deal with the devastating effects of forced displacement on people."

Constitutional Court, judgement 30 August 2000

Introduction

The Theme Group on Displacement (TGD) was established in early 1999 at the initiative of the Resident Coordinator of the United Nations system. The Group’s objective is to contribute to ensuring a more effective and coherent response by agencies of the United Nations system to matters relating to displacement. The Group’s activities are coordinated by the Office of the United Nations High Commissioner for Refugees (UNHCR); it is composed of 10 United Nations specialized agencies and the International Organization for Migration (IOM). The International Committee of the Red Cross (ICRC), the European Community Humanitarian Office (ECHO) and the Social Solidarity Network (RSS) also participate in its work as observers.
 

1. Background

Displacement as a result of violence is one of the principal manifestations of the humanitarian crisis and violations of human rights and international humanitarian law. Although the whole country is affected by that situation, the Government’s response is still unsatisfactory, against the background of an escalation of the armed conflict, increasing violence and stalled negotiations.

Over the past few years and owing to the very nature of the armed conflict, displacement has been caused by armed groups: the United Self-Defence Forces of Colombia (AUC), guerrilla groups and Government forces. RSS notes in a study on forced displacement that the proportional responsibility of each of these groups has varied considerably; while there was a sharp increase in the proportional responsibility of AUC, that of the Government forces declined. The participation of guerrilla groups fluctuated, although there has been an upward trend in recent months.

The reasons given by internally displaced persons for their flight can be broken down as follows: threats 34 per cent; fear 18 per cent; assassinations 14 per cent; clashes 10 per cent; and massacres 9 per cent (the percentage of persons citing massacres increased in the second half of 2000).

Since August 2000, there has been a noticeable deepening in the humanitarian crisis and a deterioration in security conditions, which adversely affect the protection of the civilian population. Moreover, the Colombia Plan has led to the increasing polarization of Colombian society. The personnel of humanitarian agencies is also affected to varying degrees by the escalation in the armed conflict. In addition, civilians are being constantly kidnapped, sometimes in large groups, by illegal elements, and displaced persons have been directly threatened (for example, the case of the Buga and Tuluá camps).
 

2. Internal displacement trends

The Theme Group on Displacement does not have its own system of collecting accurate data on forced displacements. In order to analyse national displacement trends, data from various reliable statistical sources such as ICRC, RSS and the Consultancy on Human Rights and Displacement (CODHES), were cross-checked. In addition to the statistical data, the trend analysis exercise was also conducted through the member agencies of the Theme Group, their projects and their network of staff in the field.

In 2000, RSS estimates that some 125,000 people were displaced. For its part, ICRC provided assistance to 112,412 people in the period from January to November 2000. CODHES estimates that as many as 308,000 people were forcibly displaced in 2000.

In its document 3057 of November 1999, the National Council on Economic and Social Policy estimated that there were 400,000 displaced persons in Colombia who needed assistance and that, since 1996, about 25,000 families (125,000 persons) have been displaced every year. If the RSS estimate of the number of persons displaced in the year 2000 is added to this figure, we would have an overall official figure of some 525,000 displaced persons in need of assistance. For their part, non-governmental organizations estimate that more than 2 million persons may have been displaced since 1995. This total does not include displaced persons who returned to their places of origin or resettled elsewhere. Nor does it provide information on the percentage of persons who were displaced more than once.

It should be noted that both government and non-governmental sources agree that not only is there a steady increase in the total number of internally displaced persons in Colombia, but also that the phenomenon is taking on crisis proportions. Since the overall figures are going up, the humanitarian crisis is deepening.

As regards the type of displacement that took place in 2000, the largest movements were by groups (of more than 50 persons) as opposed to individuals; that trend became more pronounced in the second half of the year. Group displacements account for between 60 per cent (source ICRC) and 86 per cent (source RSS) of the total number of displaced persons.

The salient features of the current displaced population are: the large proportion of boys, girls and women; its low income level; its rural origin and the disproportionate numbers of indigenous and Afro-Colombian ethnic minorities, who, although they make up only 11 per cent of Colombia’s total population, account for a third of the displaced population.

While no consolidated and comprehensive survey has been carried out, the following may be considered as the priority needs of displaced persons: food security, housing, health care, education and income-generating projects.

Displacement basically originates in rural areas, where armed insurgents are very active and where the State is either absent or has a very weak presence. The displaced persons move primarily to the poor areas of the cities, aggravating the situation in shanty towns. In that regard, the situation in the city of Bogotá, in particular, is a source of serious concern; also of concern is the situation in Barranquilla, Medellín, Cali and Cartagena.

In the Group’s view, the five departments that require top priority attention are: Antioquia, Chocó, Bolívar, Santander and Putumayo. Also of great concern is the situation of displaced persons in Sucre, Cesar, Norte de Santander, Valle, Cauca, Nariño and Caqueta.

3.Situation in the regions

The three regions where the situation is being reviewed are Putumayo, Magdalena Medio and Urabá. These regions have been chosen because of the scale of the displacement that has taken place there and the presence in the area of UNHCR field offices, United Nations personnel and other members of the TGD. As indicated above, there are also other areas of great concern, such as Norte del Cauca and Oriente Antioqueño.

3.1 Magdalena Medio

The Revolutionary Armed Forces of Colombia (FARC) and the National Liberation Army (ELN) have a strong presence in the region, while the United Self-Defence Groups of Colombia (AUC) is moving into areas previously controlled by the insurgent movement threatening the regional capital Barrancabermeja.
 

Recent internal displacement trends in the area

The phenomenon of individual displacement has been accompanied by the displacement of groups to Barrancabermeja.

Continuous and recurring displacement of the populations living in the San Lucas mountains. Although traditionally these have been migrant populations, the forced nature of recent displacements has been noted. Precise figures are not available because of the remoteness and difficulty of access to the area.

Displacement from Ciénaga del Opón (Yondó) to Barrancabermeja, a frequent occurrence that began eight months ago, with the first incursion by AUC. Large numbers of persons were displaced in November and December 2000.

Displacements from Valle del Río Cimitarra to Barrancabermeja. Clashes between the guerrillas and AUC have resulted in the displacement of persons from the villages of Cuatro Bocas, La Isla No Hay Como Dios and other settlements in the area of Valle del Río Cimitarra. The movements have been large-scale and repeated in 2000.

At-risk populations

Populations in particularly vulnerable situations include those in the San Lucas mountains and its foothills (which include Micoahumado, El Diamante and the mining area around San Pedro Frío, among others). Also at risk are the municipalities of San Pablo, Cantagallo and Yondó.

3.2. Putumayo

The situation of violence is widespread and AUC and FARC exert a high degree of social control. Fighting has taken place in the rural areas of the municipalities of La Hormiga, Orito, La Dorada/San Miguel (FARC/AUC) and Alto Putumayo, Santiago (army/FARC). Rumours exist about the resumption of the armed shutdown from mid-January. A military offensive is also possible in the rural area of Puerto Asís (Teteyé, Puerto Vega). The situation has been compounded by the impact of the Colombia Plan under which crop-spraying exercises and military operations have taken place in the area between the Caquetá and Putumayo rivers (Piñuña Negro y Blanco, Puerto Ospina, Solano) and further south in the department (Valle de Guamuez/San Miguel). It is hoped that the signing of the "Social Agreements" in the zone would help to reduce tensions and the number of displaced persons.
 

Internal displacement trends

Group displacements: The highest displacement figures are for this category of persons, including both those registered as displaced in the Department of Putumayo and those displaced into the departments of Nariño y Huila and Ecuador. Individuals, however, are still being displaced.

Department of Putumayo: of the 4,217 persons registered as displaced, 2,797 are part of a group and 1,420 are individuals. Among other places, these displaced persons travelled to Mocoa, Orito, La Dorada and Santiago (displaced from the indigenous community of San Andrés). The number of persons currently displaced is lower, because of those that voluntarily returned, were relocated or chose to move to other departments. RSS estimates that of the 2,797 persons that were victims of mass displacements, 1,538 returned.

To Nariño: during the last three months, some 1,800 persons (128 of them registered) arrived in Nariño, 90 per cent of them coming from the department of Putumayo. All those who declared themselves to be displaced received humanitarian assistance. Although in 2000 some 2,326 persons declared themselves to be displaced, only 916 of them were registered as such. Fifty per cent of the declarations reviewed in the last four months were rejected and most of them are pending review.

To Huila: some 3,900 persons have been registered as displaced persons, 900 of them within the last two months. Of these, 50 per cent are from Putumayo and the remainder from Caquetá and, to a lesser extent, from Meta. With the end of the armed shutdown, the flow from Putumayo has increased.

At-risk populations

At-risk populations include the communities located between the Caquetá and Putumayo rivers (Piñuña Negro y Blanco, Puerto Ospina, and Solano), where spraying of coca crops is taking place. Also at risk are the villages situated in the rural area around Puerto Asís (Teteyé and Puerto Vega). Persons could be displaced from the municipalities of La Hormiga and La Dorada/San Miguel on account of the fighting, widespread violence and spraying of crops. Others could be displaced from the communities situated in the upper Putumayo (Sibundoy, Colon and Santiago) on account of the fighting that is taking place there between FARC and the army.

3.3. Urabá

The insurgent groups (FARC, ELN), in particular FARC, have a strong presence in the rural areas. AUC control the urban areas of the banana-producing region of Río Sucio, the municipalities of Noriente and Río Atrato up to the mouth of the river. Clashes are taking place mainly between FARC and the army and FARC and AUC. Over the past few months, FARC has stepped up its "reconquest" campaign to gain control of territory lost in the AUC offensive. Most of the fighting is taking place in rural areas (in the vicinity of Dabeiba) and in the border regions. The civilian population continues to be victims of selective assassinations carried out mainly by AUC. A number of massacres (San José de Apartadó and La Unión) and guerrilla seizures (Balboa) have also taken place. In late December, electricity supply to Urabá was cut for 22 days as a result of FARC activity. 
 

Recent internal displacement trends in the zone

Displacement of individuals. Most of the persons displaced from rural to urban areas are in this category. Persons have been displaced from a number of municipalities to the regional capitals of Chigorodó, Apartadó and Turbo and to cities outside of the region, such as Medellín and Cartagena.

Displacement of groups. Some of the most noteworthy incidents in 2000 include the following:

Some 30 families from El Chocó (Atrato Medio) were displaced to Bajirá from the neighbouring villages (municipality of Mutatá).

Following the seizure of Vigía del Fuerte, a group of approximately 50 families arrived in Turbo in March.

In September, approximately 2,000 persons were displaced from Tierra Alta to the villages of El Cerro and Piedras Blancas in the municipality of Carepa.

At-risk populations

The population at the greatest risk of displacement is concentrated in the three frontier municipalities of Río Sucio (large groups of returnees numbering more than 10,000 persons in the area of Comunidades de Paz) and the communities that are part of the Cacarica process (2,000 persons). The situation in Unguía, Acandí and Balboa also gives cause for concern. In Balboa, the population is surrounded by armed individuals and has been victim of pillaging and supply blockades. These communities would be displaced towards the interior of the country through Turbo and Necoclí.

4. Action by the State in response to internal displacement

Despite the mandate entrusted to it by Act No. 387, which provided for the establishment of departmental and municipal committees, municipalities and departments have played a very limited role in providing assistance to displaced persons. Moreover, with the exception of Barrancabermeja, contingency plans have not been developed (in some cases, the "fear" was expressed that the plan might attract more people to the department). The level of health care provided to displaced persons in many municipalities is also inadequate.

In the case of Putumayo, where the armed shutdown resulted in a widespread humanitarian emergency (scarcity of resources, food, etc.), RSS provided humanitarian assistance, despite the difficulty of travel and transport in the territory. With regard to socio-economic integration and resettlement of the displaced population, there appear to be no clearly defined strategies and activities, only isolated efforts to promote socio-economic stability, as in the case of the returnees from Comunidades de Paz and Cacarica.

Generally speaking, the action of the State has been limited and sporadic compared to the seriousness of the phenomenon of displacement. Moreover, most of the agencies mandated to provide assistance to displaced populations have shirked their responsibilities.
 

5. Situation in border areas

5.1. Ecuador

It should be noted that the absence of frontier posts on the Colombian side and the great numbers of crossing points along the San Miguel and Putumayo rivers make it very difficult to produce estimates. About 12,000 Colombians are thought to have crossed the border over the past six months, although about 90 per cent have so far returned to Colombia (via Quito, Tulcán, Ipiales and Pasto). Some 2,287 Colombians are registered as asylum-seekers in Ecuador. Crossings increased steeply during the armed shutdown in the Putumayo department.

In Ecuador, there is a tripartite mechanism (the two Governments and the Office of the United Nations High Commissioner for Refugees (UNHCR)) for finding jointly agreed solutions. In fulfilment of its mandate, UNHCR has accompanied persons being repatriated and is ensuring the voluntary nature of returns. The humanitarian assistance provided to this group of returnees is similar to that received by internally displaced populations.

5.2. Venezuela

There has been a history of migration on the frontier with Venezuela, but the number of Colombians crossing this frontier has increased over the past two years owing to the widening of the conflict in the area. Between June and August 1999, at least three major movements were observed in the La Pista and La Gabarra regions. The Venezuelan Government has not always fully implemented international doctrine and practice in respect of refugees. In some cases, there have been bilateral understandings to encourage repatriation without giving UNHCR timely access to the refugees.

5.3. Panama

The borders of Panama have traditionally been highly permeable, mostly for the indigenous communities whose ancestral lands extend on both sides of the frontier. The most recent group movement (600 persons) was recorded in December 1999 following the attack on Juradó. In the frontier municipalities of Ungía and Acandí (Chocó), the risk of crossings by large groups is small; however, individuals cross this border owing to the abandonment by the State of rural areas in those municipalities and to the fact that many people have connections on Panamanian territory.

5.4. Migration to other countries

The numbers of Colombian nationals migrating, particularly to the United States, Canada, Costa Rica and Spain, has been increasing. In 2000, some 226,165 Colombian nationals left the country permanently. During the first half of 2000, some 1,200 asylum applications were filed by Colombians in Europe, and 600 persons requested asylum in Costa Rica. In the case of the United States of America, humanitarian organizations have requested that asylum-seekers should be granted "temporary protection status" (TPS), and this initiative was supported by the Colombian authorities.

It should be noted that in 2000, the number of persons who crossed the frontier and emigrated exceeded the number of internally displaced persons.

6. Assistance provided by the United Nations system to internally displaced persons

The agencies of the United Nations system, in accordance with their mandates, have been carrying out activities for the prevention of displacement and providing protection and care to displaced persons. The work of the agencies comes under the following areas: emergency humanitarian aid; information systems; reintegration; and institution-building. 

One of the most notable efforts in the area of displacements and the protection of the rights of displaced persons is the establishment of early-warning systems. In order to improve the exercise of the civil rights of displaced populations, efforts are being made to broaden and improve the documentation system for displaced populations in collaboration with the National Civil Register. Also, the presence of United Nations staff on the ground is intended to achieve a deterrent and preventive effect on displacement.

Emergency humanitarian aid consists in particular of promoting actions in the areas of food security, health, drinking water and basic sanitation. The work of the agencies of the United Nations system is carried out in collaboration with RSS, Colombian Family Welfare Institute (ICBF) and the Ministry of Health.

The United Nations system is promoting improvements in displacement information systems by supporting a number of governmental and non-governmental organizations with experience and/or mandates in the area (RSS, CODHES and the Episcopal Conference).

Most United Nations activities and agencies are concerned with programmes to reintegrate displaced populations. Their main areas of work are: (a) overall improvements in human settlements; (b) health care and access to basic health services and infrastructure; and (c) strengthening of the social organization around productive projects and integrating them into the production process.

Efforts to strengthen the State bodies responsible for displaced persons take a dual approach: on the one hand, collaboration with competent national bodies to design and implement public policies for providing comprehensive care to displaced populations; and on the other hand, support for improvements in public institutional management and coordination capacities, both at the central level and locally (RSS, departments, municipalities). The design and implementation of contingency plans at the departmental and municipal levels is seen as one of the key areas. Also of great significance is the establishment of strategic alliances with civil society organizations involved in the issue of displacement, as well as direct collaboration with organizations of displaced persons.

The United Nations system has given priority to 23 projects (Madrid, July 2000), which are basically intended to promote the reintegration of displaced populations over the next three years, with a total budget of approximately $40 million. Only a fraction of this amount is financed from the regular budget of the United Nations.
 

7. Main challenges in addressing the problem of displacement in 2001

1. Development of mechanisms to prevent displacement and protect the rights of displaced persons. Increasing the presence of State bodies in high-risk areas should have a deterrent and preventive effect on displacement. In this regard, one of the most important areas of work is the launching of the early-warning system in priority areas, together with the establishment of unified procedures for defending the rights of displaced persons at the national and local levels. In that regard, the opening of a Displaced Populations Unit in the Public Defender’s Office may be highly significant.
2. Emergency care must be improved and to that end: (a) the joint actions of various State bodies must be enhanced, particularly the Steering Committee on Displacement and the municipal and departmental committees for displaced populations; (b) contingency plans must be developed at the municipal and departmental levels; and (c) the institutional and procedural design of RSS must be made more flexible.
3. Greater attention must be given to the phenomenon of displacement in urban areas, particularly Bogotá, Barranquilla, Cali, Cartagena and Medellín. In light of the integration of displaced persons into marginalized urban groups, caring for displaced persons must be organized in the framework of public policies relating to zones of urban poverty. It is particularly important that the response should be coordinated with INURBRE and the Fund for Private Investments (FIP). The leading role of RSS is very important for the development of strategies and activities to promote socio-economic reintegration and the resettlement of displaced persons in urban areas.
4. Better information is needed on the phenomenon of displacement and on displaced persons. Despite current efforts, there is no reliable system of information on displacement or any thorough analysis of the needs of displaced persons, especially at the departmental and municipal levels. Such an analysis should develop particular areas of work relating to the worst-affected groups (Afro-Colombian and indigenous population groups, female-headed households, and children of either gender). More precision is also needed in locating the various displaced population groups in order to maximize the impact of available resources.
5. Progress is needed in developing integration programmes, despite the precarious conditions in the areas where displaced persons are located. There are new challenges for the implementation of reintegration programmes and projects in an environment of growing armed confrontation, which makes it more difficult to harmonize emergency care and projects that are conceived as "solutions". Furthermore, returning to the community of origin is seldom a viable solution. Current experiments such as the Peace Communities, the Programme for Development and Peace of the Magdalena Medio Region (PDPMM) and the Río Viejo Alliance are important examples for the development of a special methodology, which will be more flexible and able to adapt to the particularities of each situation.
6. To a great extent, overcoming these challenges requires the strengthening of the institutional capacity of RSS as the leading agency in the area of internal displacement in its dealings with members of the National System for Integrated Care for Displaced Populations. In its dual role as the promoter of public policy and the agency responsible for implementing programmes of care for the displaced population, RSS needs more human and material resources and more flexible and decentralized operational mechanisms.
7. Furthermore, given the impact of the situation on the country’s borders, the application of international doctrines should be ensured and working plans with a "regional approach" should be drawn up to include Ecuador, Panama and Venezuela and to address the direct and/or collateral effects of the Colombian crisis. Requests by Colombians for asylum or refuge in other countries should also be given sympathetic consideration.

DATOS RED DE SOLIDARIDAD SOCIAL

ESTADÍSTICAS ASISTENCIA CICR COLOMBIA

ENE-NOV/2000

SISTEMA DE INFORMACIÓN RUT

SECCION DE MOVILIDAD HUMANA

CONSOLIDADO NACIONAL

Datos disponibles hasta septiembre de 2000

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