Child Protection In Emergencies - HumanitarianResponse

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Child Protectionin EmergenciesCoordination Handbook

March 2016. The Child Protection in Emergencies Handbook is aproduct of the Child Protection AoR, formerly known as the ChildProtection Working Group (CPWG). While the Child Protection AoRteam coordinated the writing and editing, inputs were providedby Child Protection AoR member agencies as well as field-basedcoordinators. For more information on the CPWG please visit: http://cpwg.net/ .Editing by Scriptoria: www.scriptoria.co.ukDesign and layout by Phoenix Design Aid: www.phoenixdesignaid.com

ContentsACRONYMS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . iiINTRODUCTION. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ivSection 1: Framework for humanitarian coordination01 Types of humanitarian coordination . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 102 National humanitarian coordination . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 303 International humanitarian coordination architecture. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 504 Coordination of protection and child protection in the cluster approach. . . . . . . . . . . . . . . 1105 Humanitarian Programme Cycle . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1306 Mandates and responsibilities of United Nations agencies in relation to clusters . . . . . . . . 15Section 2: Establishing coordination07 Setting up child protection coordination groups. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .08 Working with the Protection Cluster. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .09 Staffing the child protection coordination group. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10 Leadership of the child protection coordination group. . . . . . . . . . . . . . . . . . . . . . . . . . . .11 Running the coordination mechanism . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12 National and sub-national level coordination . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13 Membership of the coordination group . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14 Information management. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15 Inter-cluster coordination and working with other sectors . . . . . . . . . . . . . . . . . . . . . . . . .16 Transitioning and cluster deactivation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19232933374143475759Section 3: Coordination functions in support of the response17 Inform strategic decision making. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6318 Plan and implement cluster strategies. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6719 Clarify funding requirements. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7120 Monitor and evaluate. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7521 Ensure preparedness. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8722 Ensure accountability to affected populations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9123 Build capacity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9524 Support advocacy. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9725 Key skills for coordinators . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 101Section 4: Ensuring quality and coverage in the response26 Child Protection Minimum Standards. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10927 What every coordinator, IMO and member should know about child protection. . . . . . . . 11128 Monitoring and reporting grave violations of children’s rights . . . . . . . . . . . . . . . . . . . . . . 115ANNEXESAnnex 1: Characteristics and accountabilities of clusters or sectoral coordination. . . . . . . . .Annex 2: Principles of Partnership . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Annex 3: Child protection assessment flow chart . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Annex 4: CERF life-saving criteria. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Annex 5: Competencies for cluster coordinators and IMOs. . . . . . . . . . . . . . . . . . . . . . . . . .Annex 6: Guideline note on selected HRP indicators developed by the UNICEF West andCentral Africa Regional Office (WCARO) in January 2016 . . . . . . . . . . . . . . . . . . . . . . . . . . .121122123125126127INDEX. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 133

RPIARRMIASCICCICLICVAIDPIHLii Child Protection in EmergenciesAccountability to Affected PopulationsArea of ResponsibilityChildren and Armed ConflictChildren Associated with Armed Forces and Armed GroupsChildren in Armed ConflictConsolidated Appeals ProcessCluster Coordination Performance MonitoringCluster Coordination Reference ModuleCentral Emergency Response FundChild Friendly SpacesCommon Humanitarian FundsCluster Lead AgencyChild Protection in EmergenciesChild Protection Information Management SystemMinimum Standards for Child Protection in Humanitarian ActionChild Protection Rapid AssessmentChild Protection Working GroupConvention on the Rights of the ChildCountry Task Forces on Monitoring and ReportingDisaster Management UnitDepartment of Peacekeeping OperationsOffice of Emergency ProgrammesEmergency Relief CoordinatorEmergency Response FundsEmergency Response PreparednessFinancial Tracking SystemGeneral AssemblyGender-based ViolenceGlobal Cluster Coordination UnitGlobal Humanitarian PlatformGeographic information systemGlobal Protection ClusterGroupe de travail sur la protection de l’enfanceHumanitarian Action for ChildrenHumanitarian Accountability PartnershipHumanitarian CoordinatorCommon Humanitarian FundsHumanitarian Country TeamHumanitarian Data ExchangeHumanitarian Needs OverviewHumanitarian Programme CycleHumanitarian Response PlanInter-Agency Rapid Response MechanismInter-Agency Standing CommitteeInternational Criminal CourtInternational Criminal LawInternational Council of Voluntary AgenciesInternally Displaced PersonInternational Humanitarian Law

SRSGSSFAToRTWiGUASCUNHCRUNICEFInternational Human Rights LawInformation managementInformation Management OfficerInternational NGOInternational Organization for MigrationLevel 3 emergencies, as declared by the IASCLetter of UnderstandingMental health and psychosocial supportMultisector Initial Rapid AssessmentMemorandum of UnderstandingMonitoring and Reporting MechanismNational Disaster Management AgencyNon-governmental organizationOffice for the Coordination of Humanitarian AffairsOffice of the United Nations High Commissioner for Human RightsOptional Protocol on the Involvement of Children in Armed ConflictProgramme Cooperation AgreementProvincial Disaster Management AgencyPeacekeeping operationsProvider of Last ResortPsychosocial supportPost-traumatic stress disorderResident CoordinatorRapid Response TeamStrategic Advisory GroupStandby PartnerSecondary Data ReviewSituation reportStandard Operating ProcedureSpecial Representative of the Secretary-GeneralSmall-scale Funding AgreementTerms of referenceTechnical Working GroupsUnaccompanied and Separated childrenUnited Nations High Commissioner for RefugeesUnited Nations Children’s FundChild Protection in Emergenciesiii

Introduction“If you want to walk fast, walk alone.If you want to walk far, walk together.”— African proverbImportance ofcoordinationEmergency contexts present many challenges regarding delivery of aid. Thecoordination of humanitarian assistance plays a central role in addressingthese.The Minimum Standards for Child Protection in Humanitarian Action(CPMS), CPWG, 2012 outlines 26 standards required to ensure adequateprotection of children in emergencies. Standard 1 addresses coordination:“Relevant and responsible authorities, humanitarian agencies, civil societyorganizations and representatives of affected populations coordinate theirchild protection efforts in order to ensure full, efficient and timely responses.”Coordination is also embedded in many of the quality and accountabilityframeworks that guide humanitarian actions, such as the Core HumanitarianStandard for Quality and Accountability (CHS) (2014), the Red Cross andRed Crescent Code of Conduct and the Sphere Standard (2011).As these standards state, coordination is not a goal in and of itself.Humanitarian actors coordinate in order to improve the effectiveness of theresponse.Purposeof theHandbookThe purpose of this Handbook is to provide actors with guidance on howto coordinate child protection responses in humanitarian contexts in orderto ensure more predictable, accountable and effective child protectionresponses in emergencies around the world.This Handbook is designed for situations where the international communityis formally engaged with the humanitarian response and where the clustersystem has been activated. The Handbook may, however, also be useful forcontexts where there is no cluster approach.Audiencefor theHandbookTerminologyand definitionAlthough the Handbook is primarily addressed to child protectioncoordination teams, which may include coordinators, co-leads andinformation managers, the guidance is equally valid for all members of thechild protection coordination group, including national and international nongovernmental organizations (NGOs), government representatives and othermembers, who seek to achieve an effective and coordinated response.Throughout this Handbook, the term ‘child protection coordination group’will be used and may be taken as referring to ‘child protection sub-cluster’,‘child protection working group’, ‘child protection Area of Responsibility’ or‘child protection sector coordination group’.This Handbook is an updated version of the 2010 Child Protection inEmergencies Coordinator’s Handbook (CPWG). It includes guidance oniv Child Protection in Emergencies

the Transformative Agenda Protocols as well as learning on coordinationsince 2010.Child protection in emergencies is defined in the CPMS as “the preventionof, and response to, abuse, neglect, exploitation of and violence againstchildren in emergencies”.StructureThis Handbook has four sections, each of which is divided into chapters: Section 1 explains the operating environment in which internationalhumanitarian coordination takes place. It presents a brief backgroundto, and key elements of, the United Nations system for humanitariancoordination as well as the mandates and responsibilities of relevantorganizations. The section also provides an overview of the internationalstandard framework that is central to child protection responses inemergencies. Section 2 unpacks the first core function of cluster coordination: toestablish a platform for service delivery. The section presents the criteriafor cluster activation and explores the foundations for setting up a childprotection coordination structure, including establishing a coordinationgroup at national and sub-national levels, managing the group, systemsfor information management, defining the roles of members in thecoordination group, and transitioning and cluster deactivation. Section 3 focuses on the five other core functions of clustercoordination: informing strategic decision making, developing achild protection response strategy, building national capacity forpreparedness, monitoring and evaluation, and advocacy. It alsohighlights key competencies for humanitarian child protectioncoordination and provides tips on how to interact with members,organize meetings, build consensus and resolve conflicts. Section 4 provides guidance to ensure standards for quality childprotection programming are promoted and upheld.Within each chapter in each section, reference documents are highlightedas either recommended reading, which coordinators should study, orfurther reading, which are optional but will enhance understanding.Child Protection in Emergenciesv

Section 1:Framework forhumanitariancoordination

01 Types of humanitarian coordinationFactorsdeterminingtype ofcoordinationstructureThe shape that humanitarian coordination takes varies in differentemergency contexts. The type of coordination structure that is appropriatedepends on the size of the emergency and its impact, the strength of thegovernment to address the resulting needs and its stance towards theaffected population. Determining questions are:Type ofemergencyIs it a natural disaster or a complex emergency? Or both?Impact typeIs the emergency sudden onset or protracted?Are the affected populations IDPs or refugees?GovernmentpositionWhat is the position of the government towards the affectedpopulation and the response organizations?EmergencysizeWhat is the estimated size of the affected population?GovernmentstrengthThe national government has the mandate to coordinate andensure the response to the emergency, but does it have adequatecapacity?Where the government has the capacity to coordinate the response toan emergency, it will do so based on established national humanitariancoordination structures and procedures. These are explored in chapter 2.International partners can reinforce the government’s coordination capacityif requested.Where the government does not have the capacity to coordinate theresponse to an emergency, the international community will usually berequested to support the relief effort. For these contexts, the UN and theInter-Agency Standing Committee (IASC) have outlined the recommendedmethods of coordination.1 This architecture is explored specifically inchapters 3 and 4.FurtherreferenceRecommended reading for coordinators:International Council of Voluntary Agencies, ‘The Context of Coordination’,section 3 in NGO Coordination Guide, version 1.0, 2013, ICVA, www.icvanetwork.org .1If it is a response involving refugee populations, UNHCR has the mandate to respond and willdo so using a Refugee Coordination Model. As mentioned in the introduction, this Handbookwas developed for situations where the IASC cluster approach has been adopted.Section 1Framework for humanitarian coordination1

02 National humanitarian coordinationEach State has the responsibility first and foremost to take care of thepopulations affected by disasters and other emergencies on its territory. Theaffected State therefore has the primary role in the initiation, organization,coordination and implementation of humanitarian assistance within itsterritory.2However, an evaluation conducted in 2010 of humanitarian responsesfound:“In their current implementation, clusters largely exclude national and localactors and often fail to link with, build on, or support existing coordinationand response mechanisms. Among other reasons, this is due to insufficientanalysis of local structures and capacities before cluster implementation, aswell as a lack of clear transition and exit criteria and strategies. As a result,the introduction of clusters in several cases weakened national and localownership and capacities.” 3Ensuring a better analysis of national coordination structures is vital toimproving our collective humanitarian responses.NationalDisasterManagementAgencyA national response involves a large number of government departments oragencies, including those responsible for health and social welfare. This iswhy, in many countries, a body has been established within the governmentwhose role it is to coordinate this range of departments. This body hasdifferent names in different countries, such as the National DisasterManagement Agency (NDMA) or National Civil Protection. NDMA is used inthis Handbook to refer to all such bodies.In terms of structure, there are three main models for where this NDMAsits within the overall governmentstructure:The NDMA can sit within the PrimeMinister’s Office. This model isused, for example, in Colombiaand Uganda.The NDMA can also take theform of a Disaster ManagementUnit (DMU) located within a lineministry, as it is in Bangladesh andZimbabwe.In the third model, there is no singleNDMA, but instead line ministrieshave their own DMUs. This is thecase in Turkey, for example.23Prime Minister’s e Minister’s OfficeLine MinistryDMULineMinistryLineMinistryUnited Nations General Assembly Resolution 46/182.Steets et al., Cluster Approach Evaluation 2: Synthesis Report, IASC Cluster ApproachEvaluation Phase 2, Global Public Policy Institute and Groupe URD, Berlin, April 2010.Section 1Framework for humanitarian coordination3

The role of the NDMA is to develop government policies, plans andguidelines for disaster management, carry out emergency preparednessmeasures, including contingency planning, and, in the event of a nationallevel emergency, to coordinate the response.The structure of the NDMA often covers federal/national level plus regional/provincial and local levels. In Nigeria, for example, there is a NationalEmergency Management Agency (NEMA) at the federal level, and thereare also emergency management agencies at state and local levels – theState Emergency Management Agency (SEMA) and Local EmergencyManagement Agency (LEMA) respectively. During an emergency, it isthe responsibility of each level to carry out response coordination withinits area of jurisdiction. If an emergency overwhelms one level, the next isresponsible for providing support.For a list of the designated NDMAs in different countries, refer to reliefweb.int under the topics ke the overall coordination of the response, the responsibility for thecoordination of individual sectors (e.g. education, health, protection),or government-led emergency or crisis sectoralcoordination, may be led by the relevant DMU.For example, in Pakistan, the responsibility for thecoordination of child protection lies with the NDMAat federal level and with the Provincial DisasterManagement Agency (PDMA) at provincial level. TheNDMA leads the child protectioncoordination group at national level and the PDMAleads at the provincial level.In the Philippines, on the other hand, even though adisaster management authority exists (the Office ofCivil Defence), a National Disaster Risk Reduction andManagement Council (NDRRMC) has been created.The responsibility for the coordination of sectoralresponses is designated to different governmentdepartments. For protection and child protection, this responsibility lies withthe Department of Social Welfare and Development (DSWD).The coordination structures for international humanitarian coordination arefurther described in the next chapter.FurtherreferenceRecommended reading for coordinators: Inter-Agency Standing Committee, ‘Operational Guidance for ClusterLead Agencies on Working with National Authorities’, IASC, 2011. Steets et al. Cluster Approach Evaluation 2: Synthesis Report, for IASCCluster Approach Evaluation Phase 2, Global Public Policy Institute andGroupe URD, Berlin, April 2010.4 Section 1 Framework for humanitarian coordination

03 International humanitarian coordination architectureUnitedNations GAResolution46/182“The magnitude and duration of many emergencies may be beyond theresponse capacity of many affected countries. International cooperation toaddress emergency situations and to strengthen the response capacity ofaffected countries is thus of great importance. The United Nations has acentral and unique role to play in providing leadership and coordinating theefforts of the international community to support the affected countries.”When the government of an affected State is unable or unwilling toattend to the humanitarian needs of the affected population, the UnitedNations General Assembly (GA) Resolution 46/182, also knownas the ‘humanitarian resolution’, assigns this responsibility to the UN.The Resolution, adopted on 19 December 1991, provides the currentoverarching framework and guiding principles for international humanitariancoordination.The Resolution laid down a number of cornerstones in the architecture ofinternational humanitarian coordination, including the role of the EmergencyRelief Coordinator (ERC), the Consolidated Appeals Process (now replacedby the Humanitarian Programme Cycle), the Central Emergency RevolvingFund (which in 2005 became the Central Emergency Response Fund(CERF)4), and the role of the Department of Humanitarian Affairs (which in1998 transformed into the Office for the Coordination of Humanitarian Affairs(OCHA)). For more information on General Assembly Resolution 46/182visit: www.un.org .IASCThe IASC was established in June 1992 in response to United Nations GAResolution 46/182 on the strengthening of humanitarian assistance. IASCis the primary mechanism for inter-agency coordination of humanitarianassistance.Under the leadership of the ERC, IASC develops humanitarian policies, agreeson a clear division of responsibility for the various aspects of humanitarianassistance, identifies and addresses gaps in response, and advocates foreffective application of humanitarian principles. It is the only decision-makinggroup that includesUnited Nationsagencies, the WorldBank, InternationalOrganization forMigration (IOM)and humanitarianorganizations.In terms of structure,IASC consists ofPrincipals, workinggroups and subsidiarybodies.4Please see section 3, chapter 18 for more details on the funding mechanisms.Section 1Framework for humanitarian coordination5

The IASC Principals are the heads of all IASC member organizations or theirrepresentatives, while the working groups bring together the EmergencyDirectors or other directors from IASC members. The member organizationsof IASC include UNDP, UNICEF, UNHCR, UNFPA, WFP, FAO, WHO, UNHABITAT and OCHA. In addition, there is a standing invitation to IOM,ICRC, IFRC, OHCHR, the Special Rapporteur on the Human Rights ofInternally Displaced Persons, and the World Bank. The NGO consortia ICVA,InterAction and Steering Committee for Humanitarian Response are alsoinvited on a permanent basis to attend. For more information on IASC visit: http://interagencystandingcommittee.org/ .Humanitarianreform andthe clusterapproachThe international humanitarian coordination architecture has undergonea series of reforms since the 1991 GA Resolution was adopted, inreaction to the changing nature of emergencies and lessons learned frompast responses. Two reform processes were particularly important: theHumanitarian Reform process and the Transformative Agenda.The Humanitarian Reform process was prompted by significant changesin humanitarian operations, namely a growing proliferation of humanitarianactors, greater competition for funding and resources, increased publicscrutiny and the changing role of the United Nations. Dissatisfied with theinternational community’s response to the humanitarian crisis in the Sudan’sDarfur region, Jan Egeland, who was the ERC at the time, commissionedwhat has become known as the Humanitarian Response Review. A numberof the ensuing recommendations formed the bedrock of the HumanitarianReform Agenda that was rolled out later in 2005, and consisted of thefollowing three pillars.1. More adequate, flexible and timely humanitarian financing.2. Strengthening strategic leadership through humanitarian coordinators.3. Improving coordination of sectoral responses through the clusterapproach.A fourth cross-cutting element was that of establishing strongerhumanitarian partnerships among and between humanitarian actors, usingthe Principles of Partnership. These Principles are described in annex 2.The aim of the HumanitarianReform process was toimprove the effectivenessof humanitarian responsethrough greaterpredictability, accountability,responsibility andpartnership. The most visibleaspect of the reform wasthe creation of the clusterapproach. Clusters aregroups of humanitarianorganizations (UnitedNations and outside groups)6 Section 1 Framework for humanitarian coordination

working in the main sectors of humanitarian action. They are created whenclear humanitarian needs exist within a sector, when there are numerousactors within sectors and when national authorities need coordinationsupport. There are currently 11 clusters as illustrated in the diagram above.Clusters provide a clear point of contact and are accountable for ensuringadequate and appropriate humanitarian assistance. Clusters createpartnerships among international humanitarian actors, national and localauthorities, and civil society.The cluster approach was applied for the first time during the response tothe 2005 Pakistan earthquake. Today the cluster approach has been usedin more than 30 countries to deliver humanitarian assistance.Responsibilityunder theclusterapproachWhich actors are responsible for what under the cluster approach? Emergency Relief Coordinator (ERC) is the Under-Secretary-General for Humanitarian Affairs who leads IASC and is responsible forthe oversight of all emergencies requiring United Nations humanitarianassistance. Humanitarian Coordinator (HC) is accountable to the ERC and isresponsible for assessing whether or not an international response iswarranted and for ensuring humanitarian efforts are organized. Humanitarian Country Team (HCT) is a strategic and operationaldecision-making and oversight forum established and led by the HC. It ismade up of representatives from the United Nations, IOM, internationalNGOs (INGO), and the Red Cross/Red Crescent Movement. Agenciesthat are also designated cluster leads should represent clusters as wellas their respective organizations.Section 1Framework for humanitarian coordination7

Government retains the primary role in the initiation, organization,coordination and implementation of humanitarian assistance in the country. Cluster Lead Agency (CLA) leads and manages a given cluster. Atcountry level the heads of CLAs are accountable to the HC. Cluster coordinators are responsible for ensuring that cluster-specificconcerns and challenges that cannot be solved within the cluster areraised and discussed with the HCT. They ensure, for example, thatstrategic decisions are shared and acted upon at operational level asdescribed in section 3.ClusteractivationIASC clusters are activated in contexts where existing governmentsectoral coordination mechanisms are overwhelmed or constrained in theirability to respond to identified needs in line with humanitarian principles.Cluster activation is based on an analysis of humanitarian need, existingcoordination mechanisms and capacity on the ground.The IASC Principals have agreed that activation of clusters should bestrategic, deliberate and time limited. The aim of the cluster activation is tostrengthen rather than replace government sectoral coordination, under theoverall leadership of the HC, and to improve international coordination insupport of the national response. When a cluster is not activated, it doesnot mean that the sector concerned is not a priority. Rather, the governmentis deemed to have the capacity to ensure coordination in that sector. TheResident Coordinator (RC) or HC will recommend the activation of clustersonly when an identified coordination need is not being addressed.To ensure that clusters continue to operate only while they are strictlyneeded, plans to deactivate and transition clusters should be prepared assoon as possible after activation. Building the capacity of local partners andgovernment should be an objective from the outset. Formal activation maybe difficult to implement in circumstances where government capacity isconstrained and different ways of augmenting coordination and responsecapaci

The Child Protection in Emergencies Handbook is a product of the Child Protection AoR, formerly known as the Child Protection Working Group (CPWG). While the Child Protection AoR team coordinated the writing and editing, inputs were provided by Child Protection AoR member agencies as well as field-based coordinators.

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