MAGUINDANAO, Philippines (AlertNet) Â? The brutal election-related massacre of 57 people, including 30 journalists, in the conflict-torn southern Philippines province of Maguindanao last November focused the world's attention on a four-decade, forgotten crisis.
The local journalists, along with seven rivals of the powerful political Ampatuan clan and 20 civilians, were attacked by about 100 armed men while on their way to witness the filing of nomination papers of a rival of the Ampatuans.
Widespread shock was accompanied by long-overdue recognition of how inequality and poverty have contributed to a long-running insurgency in the south. But officials and aid groups say the incident has set back humanitarian operations in the Mindanao region, which had seen positive developments after August 2008, the height of the latest round of fighting.
"The Maguindanao massacre has sparked increased tension in the area, while also resulting in changes in local leadership which has made it harder to put in place comprehensive plans for (the) return (of displaced people), recovery and reconstruction," said Stephen Anderson, country director for the U.N. World Food Programme (WFP).
Bureaucratic obstacles have also slowed operations. "Some government officials were charged and then had to be replaced. It took us some time to get to know them and brief them and update them on the humanitarian efforts," said a senior government official in Manila who declined to be named.
Violence also dampens the enthusiasm of the few donors and aid agencies working in Mindanao, according to David Gorman from the Centre for Humanitarian Dialogue. His organisation is involved in the revived peace negotiations between the main insurgents in Mindanao - the Moro Islamic Liberation Front (MILF) - and the Philippines government.
"When they see these types of incidents happen and happen continually with little accountability Â? granted, these individuals were apprehended but structurally not a lot has changed Â? it's making people tired, frustrated and a bit cynical about what they can really do to help in larger, longer-term development programmes," Gorman said.
The massacre and subsequent clashes between the Ampatuans, the family charged with the murders and insurgents also displaced between 5,000 and 10,000 people, according to the Internal Displacement Monitoring Centre. IDMC said the majority had not returned home as of mid-February.
In 2008, around 600,000 people fled fighting between the government and Muslim rebels, and the local authorities estimate around 100,000 of these are still displaced, living in "evacuation centres".
UNDER THE RADAR
Already, Mindanao has some of the worst social, educational and economic indicators in the country.
A report from the United Nations Development Programme says seven out of 10 provinces with the country's worst human development ratings are in Mindanao. And the number of people living on less than $2 a day is estimated to be much higher in Mindanao than the national average of 45 percent. Aid agencies also say a large number of children are stunted.
Yet, until the brutal killings, which International Crisis Group (ICG) described as "the worst acts of political violence in modern Philippine history, and the largest number of journalists slain on a single day ever, anywhere in the world", Mindanao was far down the agenda for both media and donors.
"For whatever reason, Mindanao is one of these conflicts that doesn't get media attention too much," said Anastasia Isyuk, spokesperson for the International Committee of Red Cross and Red Crescent Societies (ICRC). "Particularly when it comes to the civilians and how they are affected, it really skips the headlines."
For an impoverished region with a long, drawn-out conflict, there are very few international aid agencies on the ground in Mindanao - at the last count, fewer than 10 were working in conflict-affected areas. Even the U.N.'s humanitarian coordination agency, OCHA, has only recently set up shop.
The low level of international involvement Â? discounting U.S. troops stationed in Mindanao as part of the wider war on terror Â? has surprised and baffled observers and aid workers. The unpredictability of when and where violence will erupt and inadequate assessment of needs have not helped the cause.
The European Commission, which recently announced five million euros to assist displaced people in Mindanao, has been providing humanitarian assistance since 2000. Without a permanent presence in Mindanao, it says it relies on partners such as WFP and ICRC.
If these organisations suspend their activities or are denied access due to security concerns (which reportedly happened in the aftermath of the Maguindanao massacre), it is ordinary people who lose out.
Still, experts say there may be a silver lining to increased scrutiny of private armies after the massacre, as it will bring to the fore hitherto ignored issues such as the proliferation of arms.
"The MILF and the Ampatuan clans have always been at odds, and the crackdown on the Ampatuans has I think demonstrated to the MILF that the government was prepared to take strong measures against the group," said Gorman from the Centre for Humanitarian Dialogue.
He added that the establishment of an international contact group, consisting of governments and non-governmental organisations, and an international monitoring team that will work to protect human rights are positive steps for the peace process.
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