Management and strategic coordination to emergencies or disasters:operating tools for
This guide has been produced by RET-Protecting Through Education according to the mandate of the Inter-American Children’s Institute – IIN of the Organization of American States - OAS, with funds donated by World Vision. Authorities: DR. José Miguel Insulza - OAS Secretary General LIC. Gloria Lozano – President of the Directing Council of IIN LIC. Zaira Navas – Vice-President of the Directing Council of IIN MTRA. María de los Dolores Aguilar Marmolejo - Director General of IIN Development: Sussana Urbano Hanson - DRR Regional Coordinator for Latin America and the Caribbean – RET Coordination: Magda Pinilla - Coordinator of the Disaster Risk Management Area of IIN Ángela María Escobar C.- Deputy Director of RET in Latin America & the Caribbean. Revision: Magda Pinilla - Coordinator of the Disaster Risk Management Area of IIN Esteban de la Torre - Legal Area Coordinator of IIN Ángela María Escobar C.- Deputy Director of RET in Latin America & the Caribbean Marina Anselme López - Chief Programme Development & Evaluation Officer – RET ISBN: 978-958-99335-6-5 Organismos responsables: Inter-American Children’s Institute - IIN, Av. 8 de Octubre 2904, Casilla de Correo 16212, Montevideo, Oriental Republic of Uruguay. Oficina Regional para Latinoamérica y el Caribe de RET-Protecting Through Education, Edif. 230, Piso 3, Oficina D, Ciudad del Saber, Ciudad de Panamá, República de Panamá.
CONTENTS
Introduction 4 Background 4 Purpose 4 Structure and content; how to understand this guide. 5 Abbreviations and Acronyms 7 Glossary of Terms 8 1. Operationalizing disaster risk management for child protection 1.1. Protection Capacity. 1.2. Information on child protection data 1.3. Enhancing Intra and Interinstitutional Coordination 1.4. The Sustainability of Actions
12 18 18 19 20
2. Child protection and disaster risk management 2.1. Protection Perspective and Objective 2.2. The Effects of Emergencies and Disasters on Children’s Safety 2.3. Disaster Risk Reduction Focusing on Childhood and Youth 2.4. The Integration of Children and Youth in Disaster Risk Management
22 22 25 26
3. Approach, principles and relevant issues of child protection in the face of risk, or in emergencies and disasters. 28 3.1. The Rights Approach Focusing on Childhood and Youth 28 3.1.1. Gender equity. 29 3.1.2. Equity and Inclusion. 29 3.1.3. Multiculturalism 30 3.2. Humanitarian Principles. 31 3.3. The Life Cycle. 31 4. Framework of reference related to child protection in risk management 4.1. Agencies and Mechanisms for Member States of the Organization of American States
33 33
5. Lines of action for child protection in emergencies and disasters 37 5.1. Providing a Child Protection Response 37 5.2. Addressing Child Protection Needs 39 5.3. Establishing Child Protection Services 40 5.4. Child Protection Mainstreamed in other Sectors 42 5.5. Promoting Child Participation in Planning, Implementing and Monitoring Protection Processes and Mechanisms. 45 List of References
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INTRODUCTION
Background The Inter-American Children’s Institute – IIN, is a specialized organization of the Organization of American States, which, together with its member states, has been working in matters involving childhood and adolescence since 1927. One of the activities included in Action Plan 2011-2015 was drafting a “Policy Framework for the Promotion and Protection of Child Rights in Disaster Risk Management”, with the purpose of providing guidelines so that governing bodies could position themselves within inter-governmental and sectoral coordination systems, both local and nationwide, as well as tools which could be used to foster discussion about risk management for children in disasters and emergencies. It is expected, too, that this document will contribute to placing the issue of child rights in disaster risk management on the national agenda (political, social and cultural). As a counterpart to this Policy Framework, a number of guidance tools were planned, targeting agencies engaged in child protection in the countries in the region, to contribute to their involvement and participation in actions to reduce disaster risk, focusing on children. This guide, “Management and strategic coordination to protect the rights of children affected by emergencies or disasters: operating tools for public officials” is the first of the three guides developed as a complement to the operationalization of the “Policy Framework”. This tool provides a methodological path on the basis of which disaster risk management can be linked with the actions of agencies responsible for protecting children. The overall aim is to protect children who are vulnerable or have been affected by the impact of a damage-generating event, be it an emergency or a disaster. At the same time, it offers the basic information necessary to underpin its implementation, in view of the significance of the subject; the approaches and principles to be addressed, the underlying political and legal framework, the lines of action to be considered and reflections guiding the process. The second guide, “Operating handbook on the comprehensive protection of children in disasters and emergencies”, is part of the internal and external linking process suggested in the methodological pathway. Lines of work are described, as well as actions to be developed in an Action Plan (including preparedness, response and recovery) for the protection of the rights of children affected by emergencies or disasters, who confront abuse, neglect, exploitation and other forms of violence, in accordance with the “Minimum Standards for Child Protection in Humanitarian Action”. The third guide is “Juvenile promoters as agents of change in disaster risk management”. The objective of this guide is to offer a reference framework and a methodology in order to incorporate children through their active participation in the transformation of their physical and social settings (their homes and communities), from the perspective of risk reduction and by strengthening their capacity, self-confidence, vision and protagonism as a collective. In the methodological path we propose, child participation must be considered in any design, implementation, follow-up or monitoring and evaluation actions. 7
On the one hand, this is consistent with the rights-based approach, according to which children have the right to give their opinions and be heard with regard to their real needs, and on the other, to make the Action Plan relevant, ensuring that adequate “accountability” processes are in place, viewed as a process of joint moral and civic responsibility.
Purpose The purpose of this guide is to provide advice and tools in order to incorporate the protection of the rights of children affected by emergencies in disaster risk management policies and/or action plans. It targets “decision makers” at different levels of government (national, sub-national and local) in agencies responsible for childhood and agencies responsible for disaster response and risk management (protection or civil defence systems or directorates, risk management and disaster administration, depending on the governmental structure in place in each State).
Structure and content – how to understand this guide This guide is organized into five sections, in such a way that the reader is introduced to and guided through the processes that involve linking disaster risk management and child protection. The contents first look for ways to organize this linking process on the basis of the operationalization of DRM actions in child protection, within the structure of governing bodies (or relevant agencies), both internally and in their interinstitutional and cross-sectoral relations. After that, the next sections offer necessary information and suggest tools that may contribute to the implementation of these actions SECTION 1. Operationalizing disaster risk management for the protection of children. SECTION 2. Child protection and disaster risk management. SECTION 3. Approach, principles and relevant issues of child protection in the face of risk, or in emergencies and disasters. SECTION 4. Framework of reference related to child protection in risk management. SECTION 5. Lines of action for child protection in emergencies and disasters.
Abbreviations and Acronyms CPWG: Child Protection Working Group – Global Protection Cluster CRC: Convention on the Rights of the Child DRM: Disaster Risk Management DRR: Disaster Risk Reduction HFA: Hyogo Framework for Action ICRC: International Committee of the Red Cross IIN: Inter-American Children’s Institute IPCC: Intergovernmental Panel on Climate Change 8
NGO: Non-Governmental Organization NNA: Children and adolescents (for documents in Spanish) OAS: Organization of American States RET: Refugee Education Trust UDHR: The Universal Declaration of Human Rights UN: United Nations UNDP: United Nations Development Programme UNICEF: United Nations Children’s Fund UNISDR: United Nations International Strategy for Disaster Reduction
Glossary of Terms Adaptation to climate change: Adjustment in natural or human systems in response to actual or expected climatic stimuli or their effects, which moderates harm or exploits beneficial opportunities (IPCC, 2000).. Capacity: The combination of all the strengths, attributes and resources available within a community, society or organization that can be used to achieve agreed goals (UNISDR, 2009). Child Protection Working Group: The global level forum for coordination and collaboration on child protection in humanitarian settings. The group brings together NGOs, UN agencies, academics and other partners under the shared objective of ensuring more predictable, accountable and effective child protection responses in emergencies (CPWG, N/D) Civil Society: The wide array of non-governmental and not-for-profit organizations that have a presence in public life, expressing the interests and values of their members or others, based on ethical, cultural, political, scientific, religious or philanthropic considerations. Civil Society Organizations (CSOs) therefore refer to a wide of array of organizations: community groups, non-governmental organizations (NGOs), labour unions, indigenous groups, charitable organizations, faith-based organizations, professional associations, and foundations (World Bank, N/D). Climate change: A variation in climate conditions which persists over a prolonged period (typically decades or longer), attributable to human activities or to natural causes (IPCC, 2000). Disaster Risk Management: The systematic process of using administrative directives, organizations, and operational skills and capacities to implement strategies, policies and improved coping capacities in order to lessen the adverse impacts of hazards and the possibility of disaster (UNISDR-2009). It is the practice that leads to lessening the risk of disaster. Disaster Risk Reduction Focusing on Childhood and Youth: Disaster risk reduction that places children and youth and the centre of its activities, recognizes children’s specific vulnerabilities to disasters, focuses on the needs and rights of children, supports and is based on child participation in order to identify and address their needs and rights (Save the Children, 2011). Disaster Risk Reduction: The concept and practice of reducing disaster risks through systematic efforts to analyse and manage the causal factors of disasters, including through reduced exposure to hazards, lessened vulnerability of people and property, wise management of land and the environment, and improved preparedness for adverse events (UNISDR, 2009). Risk reduction is the political objective of disaster risk management. 9
Disaster Risk: The potential disaster losses, in lives, health status, livelihoods, assets and services, which could occur to a particular community or a society over some specified future time period (UNISDR, 2009). Disaster: A serious disruption of the functioning of a community or a society involving widespread human, material, economic or environmental losses and impacts, which exceeds the ability of the affected community or society to cope using its own resources (UNISDR, 2009). Early Recovery: The recovery task of rehabilitation and reconstruction begins soon after the emergency phase has ended, and should be based on pre-existing strategies and policies that facilitate clear institutional responsibilities for recovery action and enable public participation. Recovery programmes, coupled with the heightened public awareness and engagement after a disaster, afford a valuable opportunity to develop and implement disaster risk reduction measures and to apply the “build back better” principle (UNISDR, 2009). Early Warning System: The set of capacities needed to generate and disseminate timely and meaningful warning information to enable individuals, communities and organizations threatened by a hazard to prepare and to act appropriately and in sufficient time to reduce the possibility of harm or loss (UNISDR, 2009). Exposure/degree of exposure: Measures of exposure can include the number of people or types of assets in an area. These can be combined with the specific vulnerability of the exposed elements to any particular hazard to estimate the quantitative risks associated with that hazard in the area of interest (UNISDR, 2009). Gender Equality: Refers to the equal rights, responsibilities and opportunities of women and men and girls and boys. Equality does not mean that women and men will become the same but that women’s and men’s rights, responsibilities and opportunities will not depend on whether they are born male or female. Gender equality implies that the interests, need and priorities of both women and men are taken into consideration (UNDP, 2011). Gender: Refers to the social attributes and opportunities associated with being male and female and the relationships between women and men and girls and boys, as well as the relations between women and those between men. These attributes, opportunities and relationships are socially constructed and are learned through socialization processes. They are context/ time-specific and changeable. Gender determines what is expected, allowed and valued in a women or a man in a given context (UN-WOMEN, 2002). Global Protection Cluster: Established in 2005 as part of the humanitarian reform, the Global Protection Cluster (GPC) is the main inter-agency forum at the global level for standard and policy setting as well as collaboration and overall coordination of activities supporting the protection response in complex and natural disaster humanitarian emergencies (GPC, N/D). Hazard: A dangerous phenomenon or condition that may cause loss of life, injury or other health impacts, property damage, loss of livelihoods and services, social and economic disruption, or environmental damage. It may be attributable to human activities or to natural causes (UNISDR, 2009). Mitigation (in relation to climate change): Measures for the reduction of greenhouse gas emissions (UNISDR, 2009). 10
Mitigation (in relation to disaster): The lessening or limitation of the adverse impacts of hazards and related disasters (UNISDR, 2009). Preparedness: The knowledge and capacities developed by governments, professional response and recovery organizations, communities and individuals to effectively anticipate, respond to, and recover from, the impacts of likely, imminent or current hazard events or conditions (UNISDR, 2009). Note: Preparedness is an action that takes place in the context of disaster risk management. Its main objective is to develop capabilities to efficiently manage all types of emergencies and make methodical and orderly transitions from the response to a sustained recovery. Preparation is based on sensible disaster risk analysis and linkages with early warning systems. Preparation includes activities such as contingency planning, the reserve of equipment and supplies, the development of provisions for co-ordination, evacuation and public information and training and corresponding field exercises. Prevention: The outright avoidance of adverse impacts of hazards and related disasters (UNISDR, 2009). Protection: All activities, aimed at obtaining full respect for the rights of the individual in accordance with the letter and the spirit of the relevant bodies of law (i.e. human rights, humanitarian and refugee law). Human rights and humanitarian actors shall conduct these activities impartially and not on the basis of race, national, national or ethnic origin, language or gender (ICRC, 1999). Resilience: The ability of a system, community or society exposed to hazards to resist, absorb, accommodate to and recover from the effects of a hazard in a timely and efficient manner, including through the preservation and restoration of its essential basic structures and functions. Concept extended by UNISDR-2009. Rights Approach: Framework that integrates the norms, principles, standards and goals of the international human rights system into the plans and processes of development. It is characterized by the methods and activities that link the human rights system and its inherent notion of power and struggle with development (Boesen and Martin, 2007). Risk: The combination of the probability of an event occurring and its negative consequences (UNISDR, 2009). Sustainable development: Development that meets the needs of the present without compromising the ability of future generations to meet their own needs (UNISDR, 2009). Vulnerability: The characteristics and circumstances of a community, system or asset that make it susceptible to the damaging effects of a hazard (UNISDR, 2009).
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1. OPERATIONALIZING DISASTER RISK MANAGEMENT FOR CHILD PROTECTION
In the Inter-American Children’s Institute-IIN’s policy position paper, “Child Rights in Disaster Risk Management” 1, it is pointed out that among the most significant challenges facing the bodies responsible for child protection in the States, is developing or strengthening the positioning of childcare comprehensively and as a priority in national strategies to address disaster risk management. In order to achieve the positioning of a rights-based approach focusing on children within the framework of DRM, certain specific lines of action must be established. In the paper on “Actions for Children and Youth Resilience / Guide for Governments”, produced jointly by RET - Protecting Through Education and UNICEF, a number of specific lines of action are suggested for the protection of children, according to ten focal points. Among them are [quoted from English version of paper]: 1. Institutional Framework • Identify the obligations, restrictions and opportunities within the legal/political framework in terms of protection of children and youth, national laws and regulatory devices that are imposed on local, sub-national and national administration which improves the regulatory criteria covering the resilience, children and youth-centred. • Incorporate, in the legal framework and planning, specific rules for the implementation of mechanisms for the protection of children and youth exposed to disaster risk, or affected by an adverse damage generator event. • Incorporate, in the legal framework and planning, issues associated with the DRM focusing on children and youth in a clear and explicit manner, emphasizing issues like diagnosis, evaluation, monitoring and violence warning, sexual exploitation, abuse of children, minors’ identity registration, among others, exposed to disaster risk or affected by an adverse damage generator event. • Generate intra and inter institutional coordination mechanisms for the comprehensive care of children and youth that allow specific actions for this group in an effective and timely manner in the event of emergency or disaster. • Educate and train government stakeholders and social leaders on the legal frameworks (local, national and international) on issues related to protection and how to use them to develop and incorporate them into advocacy strategies in favour of DRR and ACC focusing on children and youth. • Promote and support inter-sectoral coordination of matters relating to DRR focusing on children and youth among the State, private enterprise and civil society actors.
1
http://www.iin.oea.org/IIN2011/documentos/Documento_Posicionamiento_Politico_ESP.pdf 12
2. Financing and resource allocation • Promote resource investment targeting for protection programs in villages located in areas prone to disasters focusing on children and youth and other vulnerable groups. • Make specific budgetary allocations from the State in its different areas, in diagnosis actions, evaluation, monitoring and violence warning, commercial sexual exploitation, abuse of children, minors’ identity registration, among others, in case of emergency or disaster, focusing on disaster risk-prone populations. • Invest in research focusing on children and youth protection issues, especially in relation to climate change, so that decision makers, technicians and community leaders have a better understanding of the subject. 3. Multi-threat risk assessment and studies centred on children and youth • Incorporate in the risk evaluation focusing on children and youth, the recognition of the specific characteristics of this group and take into consideration not only the elements linked to threats of natural origin but all the elements linked to the social environment. • Promote participatory evaluations involving children and youth. • Promote the incorporation of communities and civil society in the processes of risk assessment for the identification of needs to the authorities and awareness of the context by the population. • Coordinate inter-institutional involvement in risk assessments to develop joint planning. • With specialized support, establish protection assessments of the risks faced by children and youth living in emergency shelters after a disaster. 4. Protection, adaptation and infrastructure resilience • Promote the generation of specific spaces that take into account the characteristics and needs of children and youth. • Establish regulations and building codes that ensure the safety, dignity and comfort of children and youth.” 5. “Population awareness-raising and training • Raise awareness among populations at risk on how disaster risk and climate change affect the rights of children and youth. • Develop public campaigns for the promotion of the rights of children and youth exposed to disaster risk or emergencies or disasters. For example the promotion of the Children’s Charter for Disaster Risk Reduction. • Educate and/or train decision makers, technicians and community leaders on the legal frameworks (national and international) and how to use them to develop political advocacy strategies for DRR and CCA. 13
• Educate and/or train technical staff of the agencies responsible for the protection of children and youth on the attention of those exposed to disaster risk or affected by the impact of an emergency or disaster. • Educate and/or train rescue groups to take into account the protection of children and youth, to ensure the realization of their rights in situations of emergency or disaster response. • Develop information and communication strategies that highlight the importance of the protection of children in situations of emergency or disaster. 6. Mechanisms for protection of rights • Develop protection systems for children and youth at risk of disasters or affected by situations of emergency or disaster. • Develop manuals, plans and protocols to ensure the protection of children and youth at risk of disasters or affected by situations of emergency or disaster. • Promote the development of protection spaces. • Training of persons responsible for the implementation of emergency care plans, the impact that these have on children, risk factors and possible violations of rights that can be generated. • Develop monitoring and complaint mechanisms to the violation of rights of children and youth exposed to disaster risks or emergencies or disasters. 7. Active participation of children and youth • Promote the incorporation of children and youth in all local activities for community disaster preparedness. • Promote the use of participatory techniques for the general population and children and youth in particular for the identification of self-protection strategies and the establishment of procedures for protection more appropriate and effective before exposure to disaster risks or emergencies or disasters. • Facilitate dialogue among community leaders, local authorities, children and youth and other actors with regard to matters related to protection against disaster risk and climate change. 8. Preparation, early warning and response plans • Promote specific protection actions for children and youth in preparedness, alert and response plans. • Elaboration of manuals, plans and specific protocols regarding the protection of the rights of this age group during evacuations, living in shelters, etc. • Develop mechanisms for assessment of damage and analysis of needs that include variables related to childhood and youth protection. 14
• Guarantee, in the shortest time possible, the implementation of the evaluation of the situation of children and youth and other vulnerable groups. • Prevent separation of children and youth from their families and/or caregivers and facilitate the identification, registration and medical examination of separate children and youth, particularly those under 5 years old and adolescents. • Monitoring, reporting and communicating about serious and systematic cases of abuse, violence and exploitation of children and youth affected in emergencies or disasters. • Settle and support the establishment of surveillance systems for abuse, violence and exploitation. 9. Reconstruction and recovery processes • Ensure participation of children and youth in the process of planning and recovery and reconstruction implementation. • Promote recovery processes focusing on family, education and work, among other factors, and being placed as an axis to children and youth. • Emotional and psychological recovery processes must be included reflected in the culture and habits of the affected population while respecting its milestones and customs.” Specific strategies are necessary in order to enable the States to carry out these actions. One strategy proposed is the operationalization of disaster risk management in governing bodies for children and youth (or the relevant bodies involved in caring for this population). Below is shown a methodological path with the minimum processes required for operationalizing DRM, as well as some considerations regarding the four elements identified which pose the greatest challenges in this process.
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Internal Process
Methodological Path to Operationalize Disaster Risk Willingness
Analysis
POLITICAL DECISION
INSTITUTIONAL FEATURES
The Governing Body drives the mainstreaming of DRM in the agency.
The work team appointed conducts an analysis of the country’s existing and binding DRM-related legal and political base, levels of jurisdiction and coordination, prior experience, resources and funds available.
ORGANIZATION
COUNTRY FEATURES
Agency leaders organize an interim work team and allocate its duties.
A review of hazards, identification of vulnerabilities, risk analysis, effects of disasters on protection sector.
Institucional Strengthening FORMING INTERNAL CAPACITY
ADJUSTING RESPONSIBILITIES
Training collaborators in the binding elements (DRR, approaches and principles, reference framework, national and global norms and standards, protocols, etc.).
Developing or strengthening the allocation of responsibilities, strengthening the legal and policy framework, allocating resources and funds, etc.
INFRASTRUCTURE SECURITY
DESIGNING ACTION PLAN
Ensuring the safety of collaborators and infrastructure.
Developing or reinforcing the DRM Work Plan. The Governing Body builds scenarios involving: • PREPAREDNESS • RESPONSE • RECOVERY
Implementation PLAN IMPLEMENTATION, FOLLOW-UP AND EVALUATION -Executing preparedness and mitigation actions. -Inter-institutional and cross-sectoral coordination. -Setting in motion
-Early recovery. -Transition to normality. -Monitoring and evaluation.
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External Process
Management in Child Protection Governing Bodies Willingness
Analysis
POLITICAL DECISION
MAPPING ACTION AND RESPONSIBILITIES
The Governing Body drives the development or strengthening of the inter-institutional protection group (or sub-group, in the case of a protection cluster or sectoral protection board or similar coordination structure with that role).
Previously established programme and emergency actions, action plans, responsibilities and jurisdictions determined according to the legal framework, etc.
ORGANIZATION
COUNTRY FEATURES
The Governing Body determines leading roles and group coordination, according to jurisdictions.
A review of hazards, identification of vulnerabilities, risk analysis, effects of disasters on protection sector.
Institucional Strengthening FORMING CAPACITY IN THE SECTO-
PRODUCING A COORDINATION PLAN
RAL GROUP
-Building scenarios based on the operations of the various actors. -Defining responsibilities, leadership, means of communication and information sharing, according to jurisdiction. -Synchronization with Emergency Operation Centre – EOC. -Establishing coordination mechanisms according to jurisdiction, for International Humanitarian Aid.
Training collaborators in the binding elements (DRR, approaches and principles, reference framework, national and global norms and standards, etc.).onales y globales, etc.)
Implementation PLAN IMPLEMENTATION, FOLLOW-UP AND EVALUATION -Coordination/information and sharing in the execution of preparedness and mitigation actions. -Performing simulations and drills to assess response. -Setting in motion. -Early recovery. -Transition to normality. -Monitoring and evaluation. Inter-dependent and cyclical processes as operationalization moves forward, and according to the action plan or its implementation 17
Producing an Action Plan for Disaster Risk Management in Child Protection BUILDING SCENARIOS
IDENTIFYING ACTIONS
ACCORDING TO TYPE OF HAZARD
ACTIONS for PREPAREDNESS
• Frequency • Intensity • Extension
RESPONSE ACTIONS
BY LEVEL OF VULNERABILITY • High • Medium • Low
RECOVERY ACTIONS
DETERMINING RISK • Hazards and vulnerabilities
SYNCHRONIZING PLANS
PREPARING TO IMPLEMENT PLANS
ALLOCATION OF RESPONSIBILITIES
DEVELOPING PROCEDURES AND PROTOCOLS FOR ACTION IMPLEMENTATION
ALLOCATION OF RESOURCES
TRAINING
ASSIGNING ACTION PRIORITIES
SIMULATION AND DRILLS
Participation of Children as Agents of Change Education and Play Sessions to Empower Children in DRR PARTICIPATION AND EMPOWERMENT RISK-RELATED CONCEPTS AND RECOGNITION PROPOSAL DEVELOPMENT AND ACTION IMPLEMENTATION COMMUNICATION AND VISIBILITY OF ACTIONS 18
Minimum Standards for Child Protection in Humanitarian Action Standards to ensure a quality child protection response
Standards to address child protection needs
STANDARD 1 Coordination
STANDARD 15 Case management
STANDARD 2 Human Resources
STANDARD 16 Community-based mechanisms
STANDARD 3 Communication, advocacy and media
STANDARD 17 Child-friendly spaces
STANDARD 4 Programme cycle management
STANDARD 18 Protecting excluded children
STANDARD 5 Information management
Standards to mainstream child protection in other humanitarian sectors
STANDARD 6 Child protection monitoring STANDARD 19 Economic recovery
Standards to develop adequate child protection strategies
STANDARD 20 Education
STANDARD 7 Dangers and injuries
STANDARD 21 Health
STANDARD 8 Physical violence
STANDARD 22 Nutrition
STANDARD 9 Sexual violence
STANDARD 23 Water, sanitation and hygiene
STANDARD 10 Psychosocial distress and mental disorders
STANDARD 24 Shelter
STANDARD 11 Children associated with armed forces or armed groups
STANDARD 25 Camp management
STANDARD 12 Child labour
STANDARD 26 Distribution
STANDARD 13 Unaccompanied and separated children STANDARD 14 Justice for children 19
1.1. Protection Capacity Child protection is a relatively new aspect in the response to damage-generating events. Thus, there is no established practice framework, global pool of professionals, or centre of excellence for research, documentation and training. There is a general agreement that child protection is a first phase response. However, there has been no mapping to determine what specific methodology should be used or how large its scope. The responses – and, thus, the sector itself – are generally led by the availability of certain policies, funding and capable staff, ready to respond to children’s needs. In sum, there is a pressing need to create standards to ensure the development of public policies, as well as to train staff and identify adequate funding sources for programmes.
1.2. Information on child protection data A significant impediment to child protection is that emergencies often lack sufficient or accurate data (specific or detailed) regarding children’s prior vulnerability. Accurate counts of people at risk, including children in different age groups, often do not exist in internally displaced person, victim or refugee camps. This makes it difficult to assess needs accurately and to plan for the appropriate provision of services. All humanitarian agencies involved in response to emergencies or disasters should contribute to child protection by collecting and disaggregating data by age, gender and specific socio-cultural status, including educational level, as part of any assessment. Compounding the lack of available data is the issue of accuracy or relevance, owing to the silence and sensitivity of many protection issues, such as, for example, sexual violence, illegal fostering, trafficking and violence in the family. Programmes must identify what information is necessary for their work and collect or request others to collect it, and then ensure that it is used adequately, updated and not retained or monopolized in any of the organizations involved.
1.3. Enhancing Intra and Interinstitutional Coordination. In action targeting DRM, it is imperative for all levels of government, be they national, sub-national (departmental, provincial, state-based, depending on the country’s political and territorial organization), and their sectoral agencies (health, education, protection, among others) to establish means and instruments of coordination. They should define clear objectives and priorities according to the context, avoiding the unnecessary duplication of competence and efforts. The object should be to ensure the effectiveness of any action and proposals should aim at their sustainability. Building resilience according to the child rights-based approach demands the joint and coordinated work of the State’s executive and political bodies. Cross-sectoral and inter-ministerial coordination between development sectors for the planning, follow-up and evaluation of the State’s general administration activities is key to designing public policies targeting the appropriate care and promotion of child participation in DRM.
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As an essentially political function, but which entails operational and managerial responsibilities, cross-sectoral coordination increasingly demands an interdisciplinary approach in order to reinforce government action with a holistic and sustainable vision, thus ensuring the realization of child rights. For coordination to be effective, the role and competence of every sector involved in DRM should be clear, in the understanding that each of them has a specific responsibility in its area of development, while contributing to the single process of building resilience. The following aspects should be ensured if adequate coordination between agencies at the different levels of government and between the various development sectors is to be achieved: • Jurisdiction, roles and responsibilities should be established, including the definition of leadership and coordination. • Protocols and procedures should be produced jointly and be clear as to jurisdictions and responsibilities and the development initiatives carried out by each agency. • Information should be shared in a timely, relevant and effective manner. • Regular channels of communication and dissemination should be established between the various agencies and between these agencies and the population.
1.4. The Sustainability of Actions. Bridging the gap between the first phase of the response and the longer-term rehabilitation, reintegration and development work remains a challenge. Most typically, agencies are funded (sometimes in a limited manner, particularly in the case of States) to provide services for children immediately after an impact, but as time goes by, funds devoted to specialized care or to evaluation and monitoring of the activities begin to drop off. Any emergency or disaster response should have an in-built follow-up component of at least three to five years to ensure that affected communities benefit from any programmes undertaken2 and that links between humanitarian and State agencies are carried out adequately.
Save the Children Spain (2007). Child Protection in Emergencies [the edition in Spanish was used in the original of this paper]. Madrid, Spain. 2
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2. CHILD PROTECTION AND DISASTER RISK MANAGEMENT.
2.1. Protection Perspective and Objective Protection implies defending human rights and safeguarding life, dignity and integrity against the effects of violence, coercion and deprivation of liberty when an individual or collective is exposed to risk, crises or an impact caused by an adverse or damage-generating event. According to this perspective, the role of both State and civil society stakeholders in the area or protection is to generate an understanding of rights, and assist rights-holders to claim their rights and duty-bearers to realize them, as well as to lend humanitarian aid in vulnerable situations. This includes prevention, mitigation and response activities undertaken with the purpose of confronting the specific experiences undergone by children. All of which entails the development and implementation of specific programmes to be executed by child protection specialists, community-based work and the coordinated action of government agencies at their various levels: local, sub-national (provincial, departmental or regions, as the case may be) and national. Similarly, it involves the work of humanitarian staff and includes the integrated action of all humanitarian sectors3. Protection focusing on children should cross-cut any disaster risk management (DRM)4, action, which implies creating in communities an environment that promotes respect for child rights. At the same time, appropriate means should be developed to assess, monitor, mitigate and avoid abuse and violence in any of its forms, such as child smuggling and exploitation in circumstances arising as a result of exposure to risk and the effects of emergencies or disasters. In addition, to provide the necessary psycho-social support, prevent separating children from their families and ensure that the right to identity is safeguarded in all circumstances. Clearly, as well as their basic survival needs (food, water and sanitation, housing or shelter, among others), children require assistance to help them overcome their traumatic experiences. Children’s psycho-affective, recreational and play needs should be borne in mind as vitally important elements in the assistance procured for this group. Venues and strategies that are established to these ends should be used as opportunities to build resilience5.
CPWG. (2012).The Minimum Standards for Child Protection in Humanitarian Action Handbook. This is the systematic process of using administrative directives, organizations, and operational skills and capacities to implement strategies, policies and improved coping capacities in order to lessen the adverse impacts of hazards and the possibility of disaster (UNISDR-2009). 5 The ability of a system, community or society exposed to hazards to resist, absorb, accommodate to and recover from the effects of a hazard in a timely and efficient manner, including through the preservation and restoration of its essential basic structures and functions. Concept extended by UNISDR-2009. 3 4
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2.2. The Effects of Emergencies and Disasters on Children’s Safety Disasters have a serious and specific impact on children, who are a very high proportion of the people who are most vulnerable to such events 6. This is backed by a number of studies and research on the effects of disasters on child development. These papers state that in emergencies and disasters children are affected by: • Increasing disease, particularly among younger children. This is due to the vulnerability caused by limitations regarding shelter, clothing, food, safe water and sanitation, as well as by epidemic outbreaks that can occur immediately after an emergency or disaster. • Psychological trauma, generated by the impact of emergencies or disasters, which interrupt their regular relationships and daily routines. This can lead to sequels that alter their emotional development, cognitive capacity and social inclusion. • Separation from their families, their peers and their social surroundings, due to the death of their parents or caregivers, or to displacement caused by the emergency or disaster. • Physical and psychological ill-treatment, child exploitation and sexual abuse, to which they may be exposed as a result of family separation, the loss of their homes and livelihoods, schools and other social factors that become more acute after an emergency or disaster. Such situations may even originate in those who have a duty to protect them. • The loss of their educational venues, as a result of the impact of the emergency or disaster on the school infrastructure and educational system (or the lack of means to ensure rapid recovery in emergencies), as well as using schools as shelters, thus suspending children’s right to education. The risks to which children are exposed during emergencies vary according to context and specific factors (demographic, social, cultural, economic and political, for example). Furthermore, they also vary from child to child; that is, depending on factors such as gender, age, ethnic origin, vulnerability and capabilities7 .
2.3. Disaster Risk Reduction Focusing on Childhood and Youth Reducing the risk of disaster under the threat of which most of the population in the region lives is an unavoidable commitment. The region is not only affected by variability and climate change (which tend to increase the quantity, magnitude and recurrence of damage-generating events), or by its geotectonic features, but also by the steady increase of population in urban environments. This leads to an increase of risk-driving factors and, therefore, to the increase of poverty, marginalization as well as, consequently, the various forms of violence and conflict, with the resulting adverse impact on any positive projection of development plans and projects. The search for strategies that will made a difference in this reality makes it necessary to increase understanding of internal (vulnerability) and external (hazards ) factors and causes that give rise to disaster Bartlett, Sheridan. (2008). Climate change and urban children: impacts and implications for adaptation in low- and middle-income countries. International Institute for Environment and Development. UK. 7 UNICEF. (2008). Derechos de la niñez y la adolescencia en Emergencia o Desastre/ Compromisos de Todos. 28p. Panama, Panama. http://www.unicef.cl/unicef/public/archivos_documento/318/Unicef_frente_a_la_emergencia.pdf 6
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risk, seeking to transform the population’s perception, valuation, attitude and influence in their regard, in order to build a disaster-risk reducing culture. This should be based on the convergence of strengths and resources available within local, sub-national and national environments, to contribute to creating favourable conditions to build or develop resilience among the population. The greatest cause of concern is that the basic knowledge which is essential to save lives and protect health or property is not reaching those who are most in need of it; the most vulnerable, the poorest, who inhabit high-risk environments where they may lose their lives or their belongings through not knowing how or when to protect themselves Undoubtedly, part of the problem is linked to the lack of access to education that will address these matters. However, the problem has deeper roots in the existence and persistence of mistaken perceptions regarding the causes of disasters, or lack of understanding of the population’s insecurity, failing to take a comprehensive view of the coordination of strategies in response to emergencies with other measures to reduce disaster risk.
2.4. The Integration of Children and Youth in Disaster Risk Management The rights-based approach to children and youth in risk management and creating disaster resilience recognizes children and youth as independent persons and empowers them to commit themselves to their rights, demand them and participate in their compliance. Disaster risk management focusing on children and youth puts them at the centre of activities, recognizing their specific vulnerabilities during emergencies or disasters, according to their stage of life. In addition, this approach focuses on needs and rights, and supports and relies on the active participation of children and youth in order to identify and address their needs and rights 8. This approach: • Contributes to focusing more strongly on children who are exposed to specific risk and whose rights are systematically violated. • Fosters the empowerment of local organizations and communities through awareness-raising regarding child rights and the effect of damage-generating events on their realization and enforceability. • Links overcoming emergencies to sustainable development through active engagement and child participation in recovery and rebuilding processes that bear their opinions in mind when measuring the risks that children are subjected to and their continuing effects on future generations. • Demands that equitable procedures be in place in countries. These processes can be doubly sustainable if active child participation is included in all actions undertaken, which empowers children, not only in their present circumstances, but also by preparing them to perform their roles as adults. Save the Children International. (2011). Reducing Risks, Saving Lives: Save the Children’s approach to Disaster Risk Reduction and Climate Change Adaptation. http://resourcecentre.savethechildren.se/content/library/documents/reducing-risks-saving-lives-save-childrens-approach-disaster-risk-reduction 8
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3. APPROACH, PRINCIPLES AND RELEVANT ISSUES
OF CHILD PROTECTION IN THE FACE OF RISK, OR IN EMERGENCIES AND DISASTERS
3.1. The Rights Approach Focusing on Childhood and Youth This is defined as a trend that incorporates child rights as the focal point in the development of strategies, policies, programmes and projects. It attempts to empower children not only as objects of care, but as holders of rights and individuals with the capacity to defend and demand their legally recognized rights. Adopting this trend makes it possible for us to achieve such targets as: • Establishing long-term targets that are clearly defined for the realization of child rights in all circumstances, as well as a number of standards to measure progress and developments. • Linking our established goals to the agreed international legal framework. • Identifying the responsibilities of governments, organizations, civil society and the private sector, committing them to engage to fulfil them. The rights-based approach focusing on children includes gender equality, equity and inclusion and multicultural perspectives. 3.2.1. Gender equity. Gender equality implies the full and universal right of men and women to enjoy their citizenship, not only in political terms, but including civic and social aspects as well. The means to achieve equality is gender equity, which is understood as the fair treatment of women and men in keeping with their respective needs9. Childhood is a significant stage in every person’s life. During this stage, children are capable of promoting social and cultural changes that make it possible to build equal relationships between sexes and generations. They can contribute to lessening violence and discrimination of all kinds, including when they are gender-related. EIn this respect, action that targets building resilience to disasters must begin by informing and raising the awareness of all stakeholders regarding equal emotional and sexual relationships, existing gender roles and stereotypes, the importance of joint participation in the care and upbringing of children10. 3.2.2. Equity and Inclusion Equity implies social connotations that originate in what is also understood as equality. It involves the constant pursuit of social justice, which ensures a full and equal life for all people, without making any United Nations Development Programme-UNDP. 2011. “Equality”. América Latina Genera. http://www.americalatinagenera. org/es/documentos/tematicas/tema_igualdad.pdf 10 UNICEF/RET.2013. Actions for Children and Youth Resilience / Guide for Governments. http://www.redhum.org/documento_detail/13136 9
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distinction between them based on their social, sexual or gender status, among other aspects 11. DRM action focusing on children according to an equitable perspective should include the identification and lessening of gaps generated by disparities linked to such differences between children. This implies that the structural, underlying and immediate causes that generate gaps, inequalities and inequities should be identified and made visible. Adopting an equitable perspective, therefore, ensures that inclusive and prioritized services are in place for groups that lack them; in this case, children. This will make certain that their rights are being realized and lead to societies that are equitable and respectful of differences 12. 3.2.3. Multiculturalism The practice of multiculturalism implies ensuring attitudes of mutual respect among different persons and groups whose knowledge, values and traditions differ. In actions aimed at DRM and the development of resilience we should act accordingly and based on the strengths of each community’s cultural practices. For example, by taking into account the knowledge of traditional and indigenous societies in DRM, and promoting actions that give value to knowledge and practices that favour child and youth development, as well as alternatives based on negotiation, when attempting to modify cultural patterns that violate the rights of this particular group
3.3.
Humanitarian Principles
Humanitarian principles are key to establishing and maintaining access to affected populations whether in the context of a natural disaster, social violence, armed conflict or a complex emergency. These principles include: Humanity
Neutrality Impartiality Operative independence
Human suffering must be addressed wherever found. The goal of the humanitarian action is to protect life and health and ensure respect for human beings. Humanitarian actors must not take sides in hostilities or engage in political, racial, religious or ideological controversies. Humanitarian action must be carried out on the basis of need, giving priority to the most urgent cases and without making distinctions on the basis of nationality, race, sex, religious beliefs, class or political opinions. Humanitarian action must be autonomous from political, economic, military or other objectives that any humanitarian actor may hold with regard to areas where humanitarian action is being implemented.
It is particularly important for these principles to be upheld when children are involved, as they represent most of the affected population after a disaster. Children require to be provided with effective care, which makes it necessary to obtain disaggregated information by age, sex and specific socio-cultural Inter-American Center for Social Security Studies - CIESS. 2010. “Social Security for All� [in Spanish] Module 2: Valores y principios. http://www.seguridadsocialparatodos.org/sites/default/files/modulo2.pdf 12 UNICEF/RET.2013. Actions for Children and Youth Resilience / Guide for Governments. http://www.redhum.org/documento_detail/13136 26 11
status, in order to ensure the implementation of specific measures which will satisfy their needs and safeguard the realization of their rights.
3.4.
The Life Cycle.
It is important for the implementation of an approach centred on children and youth to consider their life cycle. The capabilities and interests of this age group must be borne in mind, as well as the problems and vulnerabilities they face at different stages of their development when attempting to exercise their rights. In general, children and youth are viewed as a homogeneous group, a simplistic way of analysing compliance with their rights which should be avoided. Each of the stages in their lives is characterized by its different skills, needs and expectations. Because of this, children’s life cycle should be addressed as a significant element in planning, implementing and monitoring actions related to DRM and resilience building. A different approach is necessary, depending on the developmental stage of the population involved, as each stage involves very distinct mechanisms and treatments. Development Stages of Children and Youth*
Early Childhood From 0 to 5 years
Childhood From 6 to 11 years
Adolescence From 12 to 18 years
*Strata mentioned in this table may vary according the law and conditions in each country. It has been provided as a reference to give an idea of the specific needs that may arise according to age differences within a group that is often viewed as a single and homogeneous group.
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4. FRAMEWORK OF REFERENCE RELATED TO CHILD PROTECTION IN RISK MANAGEMENT
• Convention on the Rights of the Child. • Hyogo Framework for Action (HFA): Building the Resilience of Nations and Communities to Disasters. • Children’s Charter for Disaster Risk Reduction. • Millennium Development Goals (MDGs) • Inter-American Democratic Charter. Minimum Standards for Child Protection in Humanitarian Action (on the basis of which this guide’s lines of action were determined). • Sphere Handbook: Humanitarian Charter and Minimum Standards in Disaster Response. • Minimum Standards for Education in Emergencies (INEE). • UNICEF’s Core Commitments for Children in Humanitarian Action. • Actions for Children and Youth Resilience / Guide for Governments. RET / UNICEF.
4.1. Agencies and Mechanisms for Member States of the Organization of American States In relation to DRM focusing on children and youth, the IIN’s policy position paper on “Child Rights in Disaster Risk Management” refers to the following bodies and mechanisms that provide guidelines for OAS member countries at a regional level: Inter-American Committee on Natural Disaster Reduction. Inter-American Children’s Institute - OAS. Department of Sustainable Development – OAS. The Inter-American Network for Disaster Mitigation. United Nations Office for Disaster Risk Reduction.
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5. LINES OF ACTION FOR CHILD PROTECTION IN EMERGENCIES AND DISASTERS
The lines of action described below are underpinned by the elements considered by the Child Protection Working Group (CPWG) of the Global Protection Cluster, in their Minimum Standards for Child Protection in Humanitarian Action. It should be noted that as lines of action, all of the factors indicated should be provided with effective monitoring and evaluation systems to enable measuring their effectiveness and relevance in the short, mid and long term.
5.1.
Providing a Child Protection Response
In order to provide children with protection in emergencies or disasters, minimum conditions should be ensured in relation to action carried out by the responsible agencies or bodies involved in tending to this age group in various areas (community, local, sub-national – provincial, departmental or regional, as appropriate – and national). This implies that information, resources and mechanisms should be in place in order to ensure the provision of an appropriate, timely and relevant response. For this reason, it is essential to consider the following factors when acting in the face of the occurrence or impact of a damage-generating event, and to do so with a comprehensive and inclusive outlook, inasmuch as their interconnections and appropriate handling are indispensable. Coordination
• Coordination helps to make sure that child protection responses are predictable and effective. • It also allows everyone involved in protecting this vulnerable group to agree on a types and levels of jurisdiction, work strategies and division of labour. In doing so, it can help create an inter-agency or multi-sectoral response that strengthens the national child protection system in the long run. • Coordination is not only the responsibility of whoever has assumed the role as lead agency, but of all the bodies involved in the response.
Human Resources • The State in its different settings should ensure that officials responsible for child protection have the necessary professional skills and competencies to engage in protecting children in emergencies. Relevant policies and procedures should be in place to ensure that these officials are trained and competent. Communication and Advocacy in relation to Children
• When used in a careful and strategic manner, texts, images and video that include children can be effective tools to protect children. These tools ensure that concerns regarding child protection are given global coverage. 29
Project Cycle Management
• Programmes and projects should be based on information garnered from assessments and should be monitored and evaluated in order to share findings on adjustments and plans that need to be established. Each project should have specific objectives and deadlines and children and their communities should be heavily involved in their design, follow-up and evaluation.
Information Management
• There are three general categories to which information management applies: 1) Information about a specific child. 2) Information on the overall situation of children in a given context, in terms of the general population. 3) The response should be mapped on the basis of information that provides a global vision, with a coordinated approach between child protection programming and the response. Information provided should be consolidated, analysed, summarized and redistributed among all stakeholders involved.
Child Protection Monitoring
• Systematic monitoring of child protection concerns should be carried out from the first stages of an emergency and maintained until conditions are back to normal. Knowledge derived from monitoring makes it possible to: a) Improve the evaluation of most of the serious problems affecting children. b) Set in motion a programmatic response to confront these problems. • These two activities are indivisible.
5.2.
Addressing Child Protection Needs
Physical Risk
• In the case of emergency or disaster, children are at greater physical risk, as they are less able to swim and run. They are physically smaller and weaker and therefore more likely to suffer harm in earthquakes or collapsing buildings. Children have less information with regard to conflict and less aware of the dangers that surround them. Special measures should be adopted in order to ensure or strengthen their physical protection.
Sexual Violence
• During emergencies or disasters, children are at risk of sexual violence in view of their dependency, limited physical strength and restricted decision-making power and as a consequence of the chaos and absence of law enforcement that can occur after an emergency. Because of these vulnerabilities, children are more likely to be subjected to exploitation, deception and coercion than adults. The consequences of sexual violence in children lead to social, physical, emotional, spiritual and psychological problems, in view of which, efforts should be made to respond specifically to these needs. Sexual violence is present in all emergency situations, but is often hidden, goes unreported or is hard to verify. Therefore, appropriate prevention should build upon children’s resilience and programmes in response to sexual violence should be developed.
Psychosocial Distress and Mental Disorders
• Most children who have experienced stressful situations will initially show changes in social relations, behaviour, physical reactions, emotions and spirituality. Reactions such as sleeping problems, nightmares, withdrawal, problems concentrating and guilt are normal, and can be overcome with time. 30
Psychosocial Distress and Mental Disorders
• It is essential to organize and coordinate appropriate local psychosocial and mental health support which will foster self-help and channel strategies for confronting the situation and resilience. Child protection response is strengthened if the children affected and their families and communities participate in leading and implementing the response as soon as possible and in a timely manner. • State agencies that are not part of the health sector tend to refer to psychosocial well-being support. State agencies that do belong to the health sector tend to speak of mental health, although historically, the terms psychosocial rehabilitation and psychosocial treatment have been used to describe non-biological interventions for people suffering from mental disorders. The definitions of these terms vary from one organization to another, and even within them, as well as in different disciplines and countries. The terms mental health and psychosocial support serve to bring together a wide group of stakeholders, as many as possible, and underline the need for a diversity of complementary approaches in lending appropriate support.
Children Associated with Armed Forces or Armed Groups
• Despite growing international attention and widespread condemnation of this practice, the recruitment and use of children in conflicts continues across the world. Boys and girls are used in a number of ways, including as combatants; in active support roles such as spies or informants; or for sexual purposes. Many of these children die, or survive with disabilities as a result of their experiences; for others, the damage and physical, emotional, developmental, mental and spiritual suffering they undergo is unfathomable.
Child Labour
• In emergency contexts, with the possible loss of livelihoods, breadwinners and access to education, and when families are separated and displaced, children become particularly vulnerable to child labour (and especially to the WFCL). An emergency may: 1) Increase the overall incidence of child labour; 2)‹ Trigger new forms of child labour; 3)‹ Result in working children taking on more dangerous work‹ and expose them to exploitative work situations. While the child protection response in an emergency should be as thorough as possible, given the complexity of responding to all child labour in a given context the response should prioritize the worst forms, and those related to the emergency. Efforts should build on and contribute to any ongoing national processes..
Unaccompanied and Separated Children
• Children separated from their parents and families because of conflict, population displacement or disasters are the most vulnerable. These children, who have been separated from their closest connections, have lost the care and protection of their families at the moment when they need them the most. Children are confronted with abuse and exploitation and their very survival may be threatened.
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5.3.
Establishing Child Protection Services
Social Welfare Case management is the process of helping individual children and families through Services and Case coordinated services and information management carried out by social workers Management appointed for these purposes. Justice for Children
• During emergencies and disasters, access to judicial institutions may be limited or non-existent; courts and administrative fora may be unable to operate, lose legitimacy or become inaccessible due to the lack of security. Crimes involving children and youth may remain unresolved, or lose priority in view of more pressing issues. At the same time, emergencies or disasters lead to situations in which children may come into contact with the justice system. Children may become involved in any of the following: - Human smuggling, being coerced or voluntarily recruited by armed groups. - Being at high risk of suffering violence within the home, especially sexual or physical abuse. - Committing crimes such as minor theft or commercial sexual exploitation (“survival through sex”). - Witnessing human rights and humanitarian law violations. - Inheritance issues or being subjected to administrative proceedings, such as guardianship applications.
CommunityBased Protection Mechanisms
• Communities can provide significant ways of preventing and responding to child protection risks that arise in families and communities. Even in situations of mass displacement where no ‘community’ is easy to see, groups of people can organize themselves to support children at risk.
Child-Friendly Spaces
• In each country, the State should establish specific parameters for these protective environments, in accordance with its own cultural, social, judicial and other special features. These parameters should ensure the relevance of the care and safeguards provided for children’s security.
Economic Recovery and Child Protection
• Economic interventions such as vocational skills training, cash transfers and vouchers, enterprise development and microfinance initiatives, have the purpose of stabilizing and increasing the income of populations affected by emergencies. These often have protective effects on children, particularly when their mothers benefit directly and when interventions build upon existing strategies to protect people’s livelihoods.
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5.4.
Child Protection Mainstreamed in other Sectors
Education and Child Protection
• For education to be relevant in disaster and climate change risk contexts, it should develop people’s knowledge and skill to manage risk and adapt to changes. In general terms, we refer to training in life skills, focusing on teaching skills that help to confront demands and challenges in children’s everyday life, including those that are related to disasters and conflicts. • Life skills are psychosocial by nature and can be applied to personal activities, social relationships or action to transform the environment to enhance security and benefit individual or collective well-being. Their essence, therefore, involves individual empowerment and realization, as well as the struggle for common objectives, and makes them a key factor when attempting to build resilience. • At the same time, education should be resilient, in order to ensure continuity, together with stability and the protection of its users during risk conditions or under the impact of emergencies or disasters, inasmuch as the right to education should be ensured at all times. • Education in emergencies or disasters provides physical, psychosocial and cognitive protection that can save and maintain lives, while providing stability and hope for the future at critical times, particularly for children. Restoring educational processes offers children who have been affected by the impact of a damage-generating event the re-establishment of their everyday lives and their community, thus enabling their psychosocial recovery from possible traumatic effects.
Health and Child Protection
Nutrition and Child Protection
Water, Sanitation and Hygiene and Child Protection
• While child protection strategies should contribute to and maintain the good health of children, health activities must reduce protection risks as far as possible, and generally be carried out in a protective way. Health intervention can make significant contributions to child protection, but can also cause harm if not conceived and implemented in accordance with the principles of the Convention on the Rights of the Child. • Children are particularly vulnerable to all forms of under-nutrition, disease, abuse and exploitation in times of instability and crisis, as they are dependent on others, and are often fragile regarding their mental and physical development. As a result, measures must be taken to make sure that children’s basic nutritional and developmental needs are being adequately and effectively provided for, while bearing in mind children’s life cycle (nutritional needs specific to each age group) as well as logistics, storage, distribution and hygiene. • Child protection workers have an important role to play in making sure that child protection interventions and activities contribute to and maintain safe and appropriate water, sanitation and hygiene (WASH) practices for and by children. • At the same time, WASH workers should make sure that their interventions are carried out in a way that protects children and their caregivers, and does not put this population at risk. 33
Shelter and Child Protection
Camp Management and Child Protection
Distribution and Child Protection
• In emergencies or disasters, shelter needs tend to be resolved at the outset through the distribution of tents, or canvas and plastic sheeting. After this, people are often provided with the equipment they need to repair their permanent or transitional homes and dwellings, depending on the situation. This is a complex sector with a number of security concerns. Children’s vulnerability may increase during and after a disaster. After the impact of a damage-generating event, children may very possibly be living with reduced or altered family units, or with members of their extended family or the community, with whom they have not previously lived. In such cases, it is critical for shelter provision to meet the protection needs of every case. Family sizes in displaced populations and host communities can also vary greatly, resulting in the need for flexibility in the shelter provided, so that all the needs of children and their families are met. Knowledge of local land and property rights is also central to making good decisions on where and how shelter is provided, and this may be important in safeguarding families from further violence, and in some cases from being forcefully evicted. • The main aim of managing camps is to create the space needed to deliver protection and help effectively. This affects child protection in several ways – for example, through the way the camp is physically planned, the way support is distributed, or the way decisions are made that affect children’s lives. The camp management team has a responsibility to make sure that children are not exposed to threats in the camp that affect their safety and physical and psychological integrity. If specific children at risk are identified, their needs should be assessed and action should be taken to adapt or target help and programmes in a coordinated way. As a result, camp management staff with responsibility towards children should have skills and commitment related to protecting children. • During emergencies, children are at risk of being affected by an increase in maltreatment, violence and exploitation. The emergency gives rise to new risks and hazards and exacerbates old threats and inequalities. Aid organization and distribution are factors that may also increase threats and the real abuse, exploitation and violence that women and children suffer. In order to avoid commonly-made mistakes, the vulnerabilities, capabilities and needs that child development entails should be borne in mind when designing and distributing assistance. Care should be taken to ensure that action does not lead to new safety concerns and to prevent the risk of creating child protection issues in the future. It should also be ensured that the behaviour of all staff delivering relief complies with the highest professional standards, and is devoid of any exploitation and abuse.
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5.5. Promoting Child Participation in Planning, Implementing and Monitoring Protection Processes and Mechanisms Child participation is defined as the informed and voluntary participation of all children in any matter that concerns them directly or indirectly, including children with different abilities and children being subjected to risk13. It seeks to influence decision-making and achieve appropriate changes. This kind of participation is grounded on widely established international bodies of law and on the CRC in particular. These instruments stipulate that: • Children have the right to be listened to, to freely express their views on all matters that affect them, and to freedom of expression, thought, association and access to information. • Measures should be put in place to encourage and facilitate their participation in accordance with their age and maturity. • Participation should promote the best interest of children and foster their personal development. • All children have an equal right to participate without discrimination. • All children have the right to be protected against manipulation, violence, abuse and exploitation. The principle of participation implies different things for children and for adults and these depend on children’s direct participation and on the community. Child participation implies acknowledging children’s right to participate in decisions that affect their lives, their families and their communities, according to their maturity; to understand and contribute according to their stage of life. This kind of participation should contribute to addressing the needs and priorities that the children themselves have established; it should be free and meaningful, rather than imposed. Participation from a rights-based perspective has a strong effect on sustainable development. In the short term, it promotes social empowerment among children and youth and in the mid and long term, it enables them to impact on these processes consciously, as citizens who are part of a collective.
Save the Children. (2005). Practice Standards in Children’s Participation. http://resourcecentre.savethechildren.se/content/ library/documents/est%C3%A1ndares-para-la-participaci%C3%B3n-de-la-ni%C3%B1ez 13
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6. LIST OF REFERENCES
Boesen, J.K.; Martin, T. (2007) Applying a Rights-based Approach: An Inspirational Guide for Civil Society. - Copenhagen, Denmark. CPWG (2013) Minimum Standards for Child Protection in Humanitarian Action. Child Protection Working Group - Geneva, Switzerland. FAO. (2006). Rapid guide for missions. Analysing local institutions and livelihoods. - Rome, Italy. ICRC (1999) ICRC Encomia Protection Seminars (1996-2000). - Geneva, Switzerland. IIN-OAS (2010) Child participation in the Americas, 20 years after the adoption of the Convention on the Rights of the Child. Montevideo, Uruguay IIN-OAS (2010) Menu of Indicators and Monitoring System for Children’s Right to Participation. Montevideo, Uruguay. IIN-OAS (2011) A toolkit for the promotion and protection of child participation in the Americas / Participation as Creative Action. Montevideo, Uruguay. IPCC (2000) Glossary of Terms used in the IPCC Fourth Assessment Report WGII. - Geneva, Switzerland. WHO (1993) Global Initiative on Life Skills Education in Schools. UNDP (2011) Equality: América Latina Genera. - New York, USA. Save the Children International (2011) Reducing Risks, Saving Lives: Save the Children’s approach to Disaster Risk Reduction and Climate Change Adaptation. - London, UK. Save the Children International (2011) Reducing Risks, Saving Lives: Save the Children’s approach to Disaster Risk Reduction and Climate Change Adaptation. - London, UK. Save the Children UK (2007) The Impact of Climate Change on Children. - United Kingdom [Spanish edition by Save the Children, Spain] (2009). Save the Children (2005) Practice Standards in Children’s Participation. - London, United Kingdom. Turnbull, Marillise et al (2013) Towards resilience: A Guide to Disaster Risk Reduction and Climate Change Adaptation. - London, UK. Twigg, John. (2007). Characteristics of a Disaster Resilient Community. Disaster Risk Reduction Interagency Coordination Group/UKAID. - London, UK. UNDP (1997) Governance for Sustainable Human Development. Division Bureau for Policy and Program Support. - New York, USA. UNICEF/PLAN. (2012). Building strong foundations: Programmatic guide for connecting early childhood development and DRR. - Panama, Republic of Panama. UNICEF-RET (2013). Actions for Children and Youth Resilience. - Panama, Republic of Panama. UNISDR. (2005). Hyogo Framework for Action: Building the Resilience of Nations and Communities to Disasters. - Geneva, Switzerland. UNISDR. (2009). Disaster Risk Reduction Terminology. - Geneva, Switzerland. UN-WOMEN. (2002). Gender Mainstreaming: Strategy For Promoting Gender Equality. - New York, USA. World Bank. (n.d.). Mainstreaming Adaptation to Climate Change in Agriculture and Natural Resources Management Projects: Guidance Notes. - Washington, D.C. USA
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