Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia 2005-2012
Changing the Paradigm 1 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) 2 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia 2005-2012
House in Banda Aceh with a message (Photo by Tom Riddle)
2013
i The International Save the Children Alliance is the world’s leading independent children’s rights organization, with members in 30 countries and operational programmes in 120 countries.
We fight for children’s rights and deliver lasting improvements to children’s lives worldwide.
Our vision is a world in which every child attains the right to survival, protection, development and participation.
Our mission is to inspire breakthroughs in the way the world treats children and to achieve immediate and lasting change in their lives.
Our values: • Accountability • Ambition • Collaboration • Creativity • Integrity
This report was written by Florence Martin, former Child Protection Adviser with Save the Children seconded to the Ministry of Social Affairs in Indonesia. Save the Children UK and Save the Children Child Protection Initiative provided the funds for the compilation and publication of this report.
The names and details of all the children in this research have been changed to respect confidentiality. Photos from Members of the research teams and programmes under Save the Children Advisers to Kemensos and Family based care Programme, unless otherwise acknowledged. Graphs and Timeline by Florence Martin.
Published by: Save the Children Indonesia Country Office Jalan Taman Margasatwa No. 26 C, Ragunan, Pasar Minggu, Jakarta Selatan 12550. Ph. 62-21-7812336, fax. 62-21-7812325
© Save the Children Indonesia Country Office
ISBN: 978-979-15511-4-4 This publication may be freely used, quoted, reproduced, translated or distributed in part or in full by any non-profit organization provided copyright is acknowledged and no fees or charges are made.
ii Foreword Save the Children Indonesia Country Office
Save the Children’s work on shifting the paradigm of alternative care for children in Indonesia is a work in progress that began in 2005 and will continue until at least 2017. Nominated as one of Save the Children’s Signature Programs, our goal is not only to improve child protec- tion and family based care for children in Indonesia but also to develop a program that can be replicated in other countries. Our report, Changing the Paradigm: Save the Children’s Work to Strengthen the Child Protection System in Indonesia (2005-2012), presents past achievements and best practices learned to date, as well as identifying challenges going forward. As readers will note, the report provides in-depth information for the entire seven years that this program has been in existence, including case studies. It also offers lessons learned as a developing country shifts policies and resources, including human resources, to support healthy child development in a safe family environment. Although there is still far to go before family based care is the norm for Indonesia’s national policies and budgets, we believe our work to date can serve as a valuable learning tool for other countries that are still developing child protection and family based care models. We are grateful to the Save the Children members and private donors who have supported our ground-breaking advances in shifting Indonesian policies and local practices from insti- tutional based care towards family based care. We thank the Indonesian Ministry of Social Affairs (MOSA), with which we work closely in the areas of research, regulating institutional based care, legal and policy reform for child protection and family based care, strengthening social welfare sectors, and piloting non-residential services for children and their families. We also thank our implementing partners at the national, provincial and district level. Due to the work of many, this program is gaining momentum and changing children’ lives for the better. Save the Children looks forward to continuing our work to strengthen the child protection system in Indonesia, to refining improvements for our current program, to scaling up in other areas of Indonesia, and to sharing our experiences with others. We welcome your inquiries, and we welcome your input and suggestions on how to address the challenges still to come.
Jakarta, May 2013
Ricardo Caivano Country Director
iii FOREWORD MINISTER OF SOCIAL AFFAIRS FOR THE REPUBLIC OF INDONESIA
First of all, let’s give our praise and thanks to Allah the Almighty as by His grace, we have the opportunity to dedicate our creative powers, intentions and efforts to deliver the best care for children in their family environment. It is with great pleasure that I write the foreword for this book entitled Changing the Paradigm: Save the Children’s Work to Strengthen the Child Protection System in Indonesia (2005-2012). This book presents the journey undertaken by a program to bring about a shift of paradigm towards family based care that was led by MOSA with support from Save the Children. As you will read, there were many results achieved during those seven years in terms of development of the child protection system, legal and policy reforms towards family based care, efforts that strengthened the social work profession and social work education, the development of child and family centered social work practice and the piloting of best practices of direct intervention for children and families. The book also provides key learning for the next steps of this program and I am delighted that Save the Children will continue to work with us on this in the upcoming years. MOSA has articulated clear policies to strengthen family based care for children. We are moving forward gradually reforming policies, programs, budget and their implementation to improve the capacity of families to care for their children, to prevent children’s separation from their families and to initiate family based alternative care mechanisms, including to encourage child welfare institutions to prioritize care for children in their families. Accordingly, allow me to present my great appreciation for the publication of this book. This represents not only an important tool for learning for Save the Children internally at regional and global levels, but also it is hoped that it can help key stakeholders in MOSA and other related Ministries, as well as other key stakeholders in non-governmental organizations to reflect on the learning and build on it to achieve an even greater movement towards family based child care across Indonesia. The collaboration between MOSA and Save the Children also represents a good example of ways international organizations can take part in national development, especially in the social welfare field. We hope that this intensive collaboration model can be inspiring to other international organizations working with MOSA. On behalf of the Government of Indonesia, allow me to give thanks to Save the Children for their good collaboration and congratulations on the publication of this book. We sincerely hope that this book can be useful to its readers.
Jakarta, June 2013 Minister of Social Affairs The Republic of Indonesia
DR. Salim Segaf Al Jufri, MA.
iv Table of Contents
Key Organizations, People and Documents Referenced in this Report vii
Executive Summary viii
I. Introduction: A shift in paradigm 1
II. Moving from emergency response in Aceh to long-term child protection 9 A. The Rapid Assessment of Children’s Homes in post-tsunami Aceh (2005-2006) 11 • Anto’s story (15 year old boy), Aceh 13 B. Advocacy to shift financial and policy support towards family based care in the recovery phase (2006-2007) 15 C. The Rapid Assessment of Islamic Boarding Schools (Dayahs) in post- tsunami Aceh (2006-2007) 17 • Ana, 18-year-old girl from West Kalimantan 21
III. Understanding child protection responses in Indonesia 26 A. The Quality of Care in Childcare Institutions (“Someone that Matters”) (2006-2007) 28 • A father’s choice (Central Java) 32 • The story of Yasmin (17 years old) and her sister Suzi (15 years old) 34 B. Evidence based advocacy: using the Quality of Care research as a basis for initiating a change in paradigm (2007-2008) 38 C. Understanding children’s views and perspectives: the Child-led research (2007-2008) 42 D. Supporting children’s advocacy in institutional care using the Child-led Research (2008-2009) 48 • Gideon (15 years old Dayak boy), Child Researcher from West Kalimantan shares his story 51 E. Learning from formal responses for children in need of special protection: The RPSA research (2009-2010) 52 • The story of Andi (13 years old boy) 55 • The story of Ida (10 year old girl) 59 • The story of Intan (7 year old girl) 61
v IV. Initiating a paradigm shift: Moving away from institutionalization and towards supporting family based care 64 A. The establishment of a regulatory system for children’s placement in alternative care 68 1. The national database system for children in alternative care and registration of childcare institutions (2007-2011) 68 2. Developing National Standards of Care for child welfare institutions (2008-2011) 73 3. Getting the National Standards of Care implemented: The dissemination and piloting process (2009-2012) 77 B. The development of a legal and policy framework that prioritizes family based care, including alternative family care 79
1. Placing family based care at the heart of plans and policies (2008-2009) 79 2. Strengthening the legal framework for family based care alternatives: Guardianship, Foster care and Adoption (2006-2012) 85
V. Establishing child and family centred social work practice 91 A. Strengthening the framework for social work education and practice: Certification and Licensing (2009- 2012) 92 B. Developing modules and training programs for child and family centred social work practice with children in need of care and protection (2009-2011) 98
VI. Piloting child and family centred responses 104
A. Bandung Centre for Child and Family Support (PDAK) (2010 - ongoing) 108 • Lina, 14-year-old girl 112 • Dewi, 16 year old girl 115 B. Preventing Separation and Reintegrating Children into Families: Piloting deinstitutionalization in Indonesia (2010 - ongoing) 118
VII. Child Protection System building: the model used in Indonesia and organizational lessons from it 129 • Yudha, 20 year old boy from West Kalimantan 134
References 141
vi KEY ORGANISATIONS, PEOPLE AND DOCUMENTS REFERENCED IN THIS REPORT
Category English Indonesian/Acronym Indonesian Ministry of Social Affairs KEMENSOS Goverment • Directorate of Children’s Services • Social Affairs Offices (province, district and city level) Dinas Sosial - DINSOS Ministry of Women’s Empowerment KPPPA National Child Protection Commission KPAI Government BBM Subsidy – a social assistance program for ‘neglected Subsidy and children’ provided to childcare institutions since 2001. Social Welfare The BBM subsidy is calculated to cover the estimated Programs cost of food for a child per day. Cash Assistance to Vulnerable Children PKSA International UNICEF Agencies and World Vision NGOs Child Fund Other Muhammadiyah – second largest Islamic organisation Partners & in Indonesia with the largest network of childcare Organizations institutions (over 300) National Forum of Panti Muhammadiyah (coordinating FORPAMA body for Muhammadiyah’s network of childcare institutions) Aisyiyah – women’s branch of Muhammadiyah National School of Social Work, Bandung STKS Child and Family Support Centre, Bandung Pusat Dukungan Anak dan Keluarga - PDAK National Association of Social Work Professionals Ikatan Pekerja Sosial Profesional Indonesia - IPSPI Association of Social Welfare Educational bodies Ikatan Pendidikan Pekerjaan Sosial Indonesia - IPPSI Individuals Mr Makmur Sunusi, head of the Directorate of Children’s Services in KEMENSOS Mr Harry Hikmat, Deputy Head for Planning Bureau in Kemensos Ms Kanya Eka Santi, Head of the Clinical Advanced Program at STKS Documents Child Protection Law (Law No. 23, 2002) UN Convention on Rights of the Child UNCRC/KHA National Standards of Care for Child Welfare Institutions Standar Nasional Pengasuhan Untuk Lembaga Kesejahteraan Anak - SNPA Other Special Protection Homes for Children Rumah Perlindungan Sosial Anak - RPSA Childcare institutions Panti Sosial Asuhan Anak - PSAA Islamic boarding schools Dayah
vii EXECUTIVE SUMMARY
Save the Children’s work on shifting the KEMENSOS and Save the Children signed a paradigm of alternative care for children Technical Cooperation Agreement in March in Indonesia grew out of the emergency 2005 and a team of two Save the Children response in Aceh to the Indian Ocean advisers was seconded to the Ministry. Five earthquake and tsunami of 2004. Attempts to key areas of change were identified: reunify children separated from their families • Evidence based advocacy; as a result of that disaster revealed that • Policy and legal reform; many of them had been placed in childcare • Capacity building and engagement of key institutions, and this raised questions about duty bearers and stakeholders in the change both the prevalence of institutional care for process; children and the lack of family and community • Initiate a shift in human and financial based care and social services for children resources towards family and child centred and families. Recognizing an opportunity to services; and take a closer look at the systems in place in • Establish good models of interventions that Indonesia as a whole, by 2006 the Ministry are child and family centred and support of Social Affairs (KEMENSOS) and Save the family based care. Children had started to identify key issues in terms of responses to child protection The first step was collecting accurate data concerns and what could be done to on children’s care situations in Aceh, which strengthen these nationwide. was conducted through the Rapid Survey of Childcare Institutions (data collection After a period of initial assessments and was conducted in two phases between research it became clear that placing vulnerable December 2005 and March 2006) and the children in institutional care was the primary Rapid Assessment of Islamic Boarding Schools mode of intervention by all service providers. It (Dayahs). The research findings were widely was conservatively estimated that there were disseminated with all key stakeholders in both 5,000 to 8,000 institutions across Indonesia Aceh and Jakarta. Following the work in Aceh, caring for up to half a million children. the Save the Children team began working Children were placed in these institutions with KEMENSOS to build a better picture of primarily by families that felt themselves, the use of residential care for children across or were deemed, to be poor and unable to Indonesia. The serious lack of data available provide for their children. Screening was on the situation of children in residential generally not carried out and supporting the care meant that a knowledge base about the child in his or her family was rarely seen as situation of these children and the protection an option. issues they faced needed to be built. Although these institutions received the bulk A total of 36 institutions were selected for of government funding for social services this ‘Quality of Care’ research in six provinces for vulnerable children, they were almost (six per province). The development of the entirely unregulated. Transforming this methodology and tools, the training of the situation would require major changes and teams and the piloting of the research tools Save the Children adopted at the outset a took place from July to September 2006. The systems approach, focused on achieving a field research took place in two stages, the paradigm shift away from Indonesia’s over- first from September to October 2006, and reliance on residential care towards policies, the second from January to March 2007. A resources, structures and services that could separate assessment of the KEMENSOS safely support children in their families and model childcare institution was carried out prevent unnecessary institutionalization. in May 2007 as a basis for comparison. The
viii research findings formed the basis for a wide partnership with KEMENSOS. Between 2008 range of recommendations and advocacy and 2011 data on 3,899 childcare institutions work, which led in 2008 to revised government from all 33 provinces was entered in the policies to support family based care. This, in national database, including information on conjunction with other work and research, almost 125,000 children. During the same culminated in child protection being included period, Muhammadiyah, the second largest as a mainstream policy in the government’s Muslim organization in the country and a National Strategic Plan for 2010-2014. major provider of institutional care was also supported to pilot the data collection system The team had also begun work to support and database and as a result it collected data on the development of a more comprehensive 403 institutions operating under the network, legal framework for alternative care in 2006. 73 additional ones that had been previously It started by providing input to strengthen known by their central coordinating body. goverment regulations on adoption and guardianship. In 2009 a drafting team was In 2011, KEMENSOS began to use the data established and the draft Regulation on in the National Database as the basis for Alternative Care was finalised in late 2011 and providing subsidies to institutions. A new sent to the Ministry of Law and Human Rights policy requires institutions in receipt of its for final review. As of 2012 that process was financial assistance to disburse at least 40% still ongoing. The draft Regulation provides of it to children living with their families, and a comprehensive framework that affirms that quota will be increased incrementally to the primacy of family based care, prioritizes 60% and so on. The aim is to ensure financial family preservation efforts, and establishes assistance from KEMENSOS actually facilitates kinship care as the first alternative for children the shift of paradigm from residential to non- deprived of parental care. It also revised residential services. guardianship and adoption regulations. Beginning in August 2007, child-led research In 2007, the team worked with the National was facilitated with 60 child researchers in six Statistical Agency to extract and analyse the institutions in Maluku and West Kalimantan data from a national population survey to provinces identifying and exploring major provide a clearer picture of the situation of areas of concerns or interests in the lives children with out parental care and how they of children in their institutions. In May are living with. The same year it also began 2008 the findings were disseminated to work with the Ministry of Social Affairs to childcare institutions, government bodies at support the establishment of a population all levels, and the general public. Based on survey on children’s care situations and the findings of this and the previous ‘Quality then worked with a consultant to develop of Care’ research, in May 2008 the Save the a national Database for Children without Children team in KEMENSOS facilitated the Parental Care for the Directorate of establishment of a Task Group to develop Children Services. The aim was to support National Standards of Care for childcare the establishment of a regulatory system that institutions, the draft of which was finalised would require providers of residential care in November 2009. in Indonesia to be properly registered and that would work with them to ensure the Training in the National Standards and in the quality of services provided. By June 2008 use of the National Database was conducted the database for Children without Parental for newly recruited government social workers Care was finalised. being placed by KEMENSOS in childcare institutions in a number of provinces. In 2011 Piloting the use of the database with a the National Standards of Care for Child number of provincial and district authorities Welfare Institutions were formally adopted by was conducted between 2008 and 2009 in a Ministerial Decree (No 30/HUK/2011) and
ix enacted into law (No 303, 2011). A National Welfare Organizations. Both regulations Monitoring Team was formally established in were adopted before the end of 2009. 2011 under the Directorate General for Social Services and Rehabilitation in KEMENSOS. In While reforms of the framework for social order to support the implementation of the work education and practice were being National Standards of Care, Save the Children sought, it was vital to initiate a shift in what worked with KEMENSOS to conduct intensive was being taught in social work schools. In piloting of the standards with six childcare 2009, Save the Children’s team began to institutions in West Java and Yogyakarta as part develop five modules on permanency planning of its Deinstitutionalization pilot. This work is and child protection targeted at senior social continuing at the time of writing this report. work teachers and trainers, together with a practicum program. In March-April 2010 In 2009 research was undertaken into the intensive training was conducted over two government’s Special Protection Homes weeks with 20 senior social work lecturers for Children (RPSAs), as the government from the eight schools of social work and considered them to be model institutions social workers from the Ministry of Social which would be a road map for the future Affairs. Six modules on child development delivery of services to vulnerable children, and and parenting were also developed and 20 anticipated their replication nationwide. The social work educators from the main schools fieldwork for this research took place from of social work and staff from the Ministry of April to October 2009 and analysis of data Social Affairs were trained. and report writing was finalised in January 2010. The findings from the assessments were In 2010 the Save the Children team initiated consolidated and presented to the institutions a new pilot project in partnership with and to the Ministry of Social Affairs in 2010. KEMENSOS and the social affairs authorities In 2011 an overall report bringing together at the provincial level in West Java and the learning with recommendations for the in Bandung Municipality. The Child and RPSA model, as well as child protection more Family Support Centre in Bandung (Pusat broadly, was published. Dukungan Anak dan Keluarga- PDAK) sought to demonstrate how professional child Save the Children recognised early on that a protection interventions in individual cases shift of paradigm from primarily residential could occur outside a residential care setting, based services towards child and family using a case management approach. The centred services would also require a change Centre was established and began working in the competencies and mandates of social in August 2010. As of June 2012 PDAK had workers. It worked closely with some of the conducted case management interventions major schools of social work from the start, with 159 children and provided family and adopted a capacity building approach support services to almost 235 children and with these actors throughout. In April 2009 their families. Save the Children convened a broad Working Group of senior social work educators, A different model of a community support practitioners and policy makers to discuss centre for families was also planned, to be the implication of a new law on social welfare tested in Yogyakarta, Central Java, which would (Law No 11) for social work practice, with a provide more preventive services for children focus on children and families. The Working and families in need of support. It is to be Group contributed directly to the drafting of a walk-in centre run by community members the Ministerial Regulation on the Certification that can make use of existing resources at of Professional Social Workers and Social that level but also link families to resources Welfare Officers (TKS) and the Ministerial and programs at other levels. Work on this Regulation on the Accreditation of Social model had just begun in 2012.
x Save the Children started consultations levels, and training needs and tools for foster on developing and testing a model for de- parents and foster care providers. institutionalization in Indonesia in 2010 and into 2011. It proposed and agreed on a The work, conducted in partnership with pilot project with three institutions, to work the Ministry of Social Affairs over a period with them over a period of five years. In of seven years, and still ongoing at the time December 2011 the team also conducted an of writing this report, brought together assessment of the ‘sending/recruiting‘ areas, a range of actors, including children, who talking to local community leaders and village contributed directly to the changes initiated. secretaries, school personnel and families as Although considerable documentation of this well sub-district authorities. work already existed, it was fragmented and scattered. No report brought together what A working group was established in February was done in a way that could support a better 2012 to discuss and develop the mechanism understanding of the changes and enable for foster care, the criteria for foster parents organizational learning on a system building and children’s eligibility to be fostered, and approach to child protection. This report the procedures to assess and oversee foster seeks to do this, although it is important to care placements and for providing support to note that it is not an evaluation, nor does it foster families. Agreement has been reached seek to provide an independent assessment on the mechanism and system for foster of impacts and outcomes. It is a reflection and care, while discussions are ongoing about the documentation piece that hopes to explain role and responsibilities of the Social Affairs what was attempted and done, why, and some Offices at district/municipality and provincial of the things that were learnt along the way.
xi
I. Introduction: A shift in paradigm
On the 26th December 2004 one of the largest families, ran emergency education programs recorded earthquakes struck the West coast for tens of thousands of displaced children, of Sumatera Island in Indonesia, triggering a and provided cash for work, community devastating tsunami in the Indian Ocean that kitchens, safe plays areas, and temporary affected eight countries. This disaster wiped shelters for affected communities. out entire areas of Aceh province (Nanggroe Aceh Darussalam), located on the northern Discussions of the longer-term needs of the tip of Sumatera. More than 160,000 people province began in the spring of 2005 as the died and at least half a million were displaced. focus shifted to longer-term development One-third of Aceh’s 820,000 homes were and preparedness for potential future heavily damaged or destroyed, including disasters in Indonesia as a whole. Doing in its capital Banda Aceh. Major social and so would entail a shift from providing economic infrastructures were left unusable, services directly to vulnerable families in including 26 health centres, almost 1,500 Aceh to strengthening the capacity of the schools, roads, ports, and agricultural lands. Indonesian government, local authorities and institutions to deliver effective services and Beyond those directly impacted by the responses to families in both emergency and disaster, most families were also affected non-emergency contexts. through the loss of relatives, friends, land, livelihood and opportunities. When the Save the Children US had operated a number Indian Ocean earthquake struck, Aceh of programs in Indonesia since the mid province had already experienced 30 years of 1970s, focused on community development, conflict between a local separatist movement strengthening livelihood trafficking and (GAM) and the Indonesian military (TNI), access to education and health services. with thousands of communities affected by Save the Children UK had worked in violence, insecurity and isolation. different areas of the country since the late 1990s, providing particular support to The scale of this disaster triggered a unique children affected by the armed conflict in humanitarian response and over 200 agencies East Timor and the sectarian conflicts in worked to support the emergency response. West Kalimantan and Maluku in early 2000. Save the Children was among the first agencies on the ground, having worked in Indonesia, including Aceh province, since the mid 1970s. The organization raised millions of dollars in funds and deployed a major emergency and recovery response, providing assistance to over 300,000 individuals. Together with key partner agencies, including UNICEF, it registered separated children, worked to reunify them with their Devastation in Banda Aceh (Photo by Tom Riddle)
Changing the Paradigm 1 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) It also conducted advocacy work to The scope of the Technical Cooperation strengthen systems and policies to ensure Agreement was soon broadened. The children’s access to quality basic education, Ministry and Save the Children UK were to protection from violence and HIV/ Aids. work together ”to respond to children who are Both organizations worked closely with the in need of care and protection and in particular Ministry of Social Affairs (formerly known as ensure that children who are without parental DEPSOS, now KEMENSOS), Health (MENKES) care or separated as a result of social, natural, and Education (KEMDIKBUD) and were personal disaster or crisis are provided at all operating in the country under an agreement time with appropriate support and assistance with the Ministry of Social Affairs. in line with Law No 23 on Child Protection.”3 By 2006 the team had started to look In mid 2005 Save the Children began beyond the immediate response to the Aceh discussions with the Head of the Directorate disaster and identify the key issues in terms of Children’s Services in KEMENSOS, Mr. of responses to child protection concerns Makmur Sunusi, recognizing that the Indian in Indonesia, and what could be done to Ocean humanitarian response was an strengthen these responses nationwide. opportunity to take a closer look at systems in place in Aceh and in Indonesia as a whole. After a period of initial assessments Under the leadership of Mr. Sunusi it was and research conducted in Aceh and six agreed that direct technical support was other provinces it became clear that needed at central government level in Jakarta the placement of vulnerable children in and in the Aceh Social Affairs office (Dinas institutional care was the primary mode Sosial - Dinsos). A team of two advisers (one of intervention by all service providers. international adviser and a national child protection specialist) was to be seconded Indonesia’s child protection system was found by Save the Children and placed within the to rely almost exclusively on residential care Ministry’s Directorate of Children’s Services, interventions and, although these institutions under the supervision of the Director. received the bulk of government funding for social services for vulnerable children, KEMENSOS and Save the Children signed they were almost entirely unregulated. a Technical Cooperation Agreement in March 2005 setting out the scope of work, The team also found little awareness the role of the advisers and the respective existed of the potential negative impact of responsibilities of both agencies. A major institutionalization on children. Residential focus was strengthening and building on care was generally seen as best for children of responses for children unaccompanied as a families who were considered ’without capacity’ result of the disaster in Aceh, including tracing (‘tidak mampu’). There were also considerable and family reunification, as well as placement vested interests involved in the provision of in alternative care for children who had lost services for children through institutional care. their families.1 The technical advice team Childcare institutions were the major players began work in late September 2005, located and providers of services for vulnerable in a small office in the Directorate of Children children throughout Indonesia; in some places Services in KEMENSOS.2 the only providers. The issue of alternative
3 1 Technical Cooperation Agreement on Separated and Unaccompanied Children, between the Ministry of Social Affairs and Save the Children UK, 2005. The agreement was renewed each year and its scope broadened to Children in Need of Protection at the end of 2006. 2 The international adviser was Florence Martin and the National Adviser was Tata Sudrajat. An adviser was also placed in Aceh’s Office of Social Affairs through UNICEF, but there were considerable delays before that post could be agreed and operational, partly due to the disaster. \ 3 Technical Cooperation Agreement on Children in Need of Protection between the Ministry of Social Affairs and Save the Children UK, 2007.
2 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) care and children’s right to grow up in a family the team adopted a systems approach was not on the agenda of local NGOs working focused on achieving a paradigm shift, away on children’s rights and protection. from Indonesia’s over-reliance on residential care and towards policies, resources, Transforming this situation would require structures and services that could safely major changes, starting at the national level support children in their families and prevent where the Ministry’s policies and funding unnecessary institutionalization. were fuelling the problem. From the outset
Five key areas of change were identified:
1. Evidence based advocacy 2. Policy and legal reform
To put the issue on the map through research To initiate a major review of existing laws and advocacy to identify and publicize the and policies to ensure these are consistent problem, creating greater public awareness with the UN Convention on the Rights and political will from key actors including of the Child, including the development policy makers, social service providers, of a framework to regulate the use of relevant professionals and academics, institutional care and ensure the provision and community actors, including staff and of a range of family based alternative care children in institutional care. options, with residential care as a last resort.
3. Capacity building and 4. Initiate a shift in human and engagement of key duty bearers financial resources towards family and stakeholders in the change and child centred services process To work with government and organizations To use research and advocacy to build the running residential services to transform capacity of key duty bearers and strategic the role of institutions and their resources partners to understand the problem and towards providing services to children act upon it: a team of ‘champions’ that in their families and communities, and could drive the change process in all supporting the development of social work sectors (policy makers, government, service professionals with the skills and mandates providers, professionals, and children in to work directly with children and families. alternative care).
5. Establish good models of interventions that are child and family centred and support family based care
To pilot a child and family support centre in Bandung (West Java) that uses professional social work responses to support appropriate care placements and protection responses for children at risk, and develop an Indonesian model of deinstitutionalization with gatekeeping mechanisms in place and the adoption of family reintegration protocols.
Changing the Paradigm 3 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) This work sought to reframe the way the whole this report, initiated a major shift in the child child welfare system responded to protection welfare system away from institutional care risks faced by children and families by moving towards the delivery of child and family towards direct services to support families centred services. It brought together a and protect children within their families and range of actors, including children, who in their communities. To achieve this, Save the contributed directly to the changes initiated. Children adopted a systems approach to child Although considerable documentation of protection, seeking to strengthen the policy, this work already existed it was fragmented legislative and organizational framework; and scattered. No report brought together and the mechanisms, human resources, skills what was done in a way that could support andcapacity required to deliver these services. a better understanding of the changes and enable organizational learning on a system This report will therefore also adopt building approach to child protection. a systems framework to highlight the relationship between a program or initiative Understanding how this work was and the particular components of a national conducted, what processes and activities child protection system. The report will use were implemented, the challenges faced the key components of an effective child and the strategies and interventions protection system as identified by Save the that were tested, can inform continuing Children in its ”Rough Guide” and UNICEF work to strengthen the child protection in its Mapping and Assessment Toolkit for system in Indonesia. It is also hoped that Child Protection Systems.4 (See Figure 1 it can contribute to Save the Children’s for the key components of a national child global efforts to strengthen national child protection system.) Colour coding will be protection systems, and the learning the used throughout the report to highlight the organization is doing in that context. It is contribution a particular intervention or important to note, however, that this report activity aimed to make to the child protection is not an evaluation of the work done, nor system and each section of the report will does it seek to provide an independent have ’What was done and why’, ’The approach assessment of impacts and outcomes. It is a taken’ and ’Key findings and learning’ segments. reflection and documentation piece that will instead seek to explain what was attempted The work, conducted over a period of seven over a seven year period, why, and some of years and still ongoing at the time of writing the things that were learnt along the way.
4 Save the Children (2008), A ‘rough guide’ to child protection systems. London: Save the Children. UNICEF (2010), Child protection systems: Mapping and assessment toolkit. Retrieved at: http://www.unicef.org/protection/57929_58020.html;
4 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Figure 1: The nine major components of a national child protection system
An aware and supportive public
Knowledge and data on child protection issues and good practices
Child Protection laws and policies, compliant with the CRC and international standards and good practice
Adequate funding
Effective regulation, minimum standards and oversight
Meaningful coordination across government and between sectors at different levels
A skilled child protection workforce
Preventive and responsive services
Children’s voices and participation
Changing the Paradigm 5 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Colour referencing for the key components of a national child protection system
Child Protection laws and policies, compliant with the CRC and other international standards and good practice
Meaningful coordination across government and between sectors at different levels
Knowledge and data on child protection issues and good practices
Child Protection laws and policies, compliant with the CRC and Ef- fective regulation, minimum standards, and oversight
Preventive and responsive services
A skilled child protection workforce
Adequate funding
Children’s voices and participation
An aware and supportive public
6 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Timeline of activities and changes with colours showing the component of the child protection system being strengthened Earthquake andEarthquake tsunami in Aceh 2005 24 December 2004: 24 December in Ministry of Social of Social in Ministry SC Advisers placed Survey of childcareSurvey Affairs institutions Aceh 2005-2006 affected children 2005-2007 Advocacy tofunding shift and policy forand policy tsunami reviews funding reviews to childcare 2006 Reconstruction agency institutions 2006 boarding schools Aceh Survey of IslamicSurvey 2006-2007 Quality ofQuality Care research in six provinces 2006-2007 Guardianship and adoption regulations revised (2006-2009) Evidence based advocacy Evidence advocacy based on residential care (2007-2008) 2007 Analysis of children’s care sistance to families in post- data from Population Survey of economicSurvey as- tsunami Aceh 2007 Survey (MK) Survey 2007 registration of child welfare institutions (2007-2011) National database and 2 provinces 2007-2008 Child led research led Child in Child led advocacy advocacy led Child Revised governmentRevised policies to support care family based 2008 2008-2009 National Standards of Care for child welfare institutions (2008-2009) 2008-2011
Changing the Paradigm 7 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Registration and data colletction Assessment of Protection Special from child welfare institutions Homes (RPSA) (2007-2011) Social work practice modules Social 2009-2010 protection and permanency planning (2009-2010) and training on child Certification, Licensing Certification, and 2009 Accreditation regulations adopted 2009 Strategic Plans of of Ministry prioritizes care family based Social WorkSocial Education Bodies Association Workers of Social Social Affairs (2010-2014) Social Reform of Professional the Reform of Association of (IPPSI) (2009-2010) (IPSPI) (2009-2010) (2010-2014) includes child protection as maintream National Strategic Plan Social work practice modules Social development and parenting and training on child skills (2010-2011) skills priority 2010 of Care and dissemination in Piloting National Standards (BBM) to support children in Shift of financial assistance West Java/Yogyakarta families (2010-2011) (2009-2012) Definition of Social DefinitionSocial of Work and national adopted curriculum Child andChild Family Support Centre piloted model in Bandung (2010-now) (2010) National Standards for social work practice adopted Alternative Care drafted and Government regulation on (2010-2011) finalised (2010-2011) finalised for child welfare institutions National Standards of Care 2011 formally adopted 2011 Piloting deinstitutionalization and prevention in West Java (2011- now) Accreditation Organi - of Social Social WorkSocial Certification and zations established bodies Foster care mechanism 2011 piloted in Bandung (2012- now) 2012
8 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) II. Moving from emergency response in Aceh To long term child protection in Indonesia
In the aftermath of the tsunami in Aceh, it decisively to prevent further separation was feared that an exceptionally high number of children. It enacted decisions to freeze of children had become separated from their all adoptions, intra- or inter-country, and families and that most had become orphans to prevent the transfer of children abroad. as a result of the disaster. No figure was It promulgated a new Policy on Separated available on the number of children who had Children, Unaccompanied Children and Single- lost one or both parents but news media parent Children affected by Emergency carried stories of tens of thousands of Situations, integrating ‘tsunami orphans’. key international principles.6 The policy In February 2005, Vice President Jusuf Kalla stated that ”children receive the best care was quoted in the press as saying “at least when they are in a family environment 20,000 of the [separated] children lost not and remain in their community, culture only their parents but also all other family and religion”. It articulated principles for members and relatives” (Martin & Sudrajat, interventions in relation to separated children 2006). This led to great public concern for in an emergency, in particular that: separation these children and an outpouring of funds from the family and community should be was directed towards childcare institutions. prevented whenever possible; support for Children were also transferred from Aceh to family based care should be prioritized; and other provinces to be placed in institutions. placing children in institutional care should Allegations of child trafficking were rife and be a measure of last resort. The policy also some credible reports pointed to children identified the support that families should being taken abroad for medical care. receive in order to continue caring for these children during the emergency. The FamilyTracing and Reunification Network (FTR) was established in January 2005 and a Despite this important policy, it became common tracing and reunification system set clear that many new childcare institutions up.5 Save the Children led the work with the (Panti Sosial Asuhan Anak) were being built development of a shared database system in Aceh and many existing ones were located in the Office of Social Affairs in Aceh, expanding and receiving significant numbers to be used by all agencies conducting family of new arrivals. Discussions with staff from tracing and reunification work. Between childcare institutions and Islamic boarding January 2005 and May 2006, the Network schools (Dayahs) in other districts also registered almost 3000 unaccompanied pointed to high numbers of children being children. About 700 of these children had placed there since the disaster, as well as lost their parents, while the remainder did considerable movement of these children not know their whereabouts at the time. from one institution to another. Most were eventually reunited with parents or extended families. Most of the separated and unaccompanied children who had been registered by the FTR With the support of UNICEF and Save the Network were living in temporary barracks Children the government had responded set up by the Government to address the
5 The FTR Network included the Ministry of Social Affairs, the Ministry6 of Women’s Empowerment (KPP), the provincial department of social affairs (Dinsos) in Aceh, UNICEF, the International Committee of the Red Cross (ICRC), Muhammadiyah, PUSKAKA, Cardi/IRC and Child Fund among others. 6 Indonesian Government Policy on Separated Children, Unaccompanied Children and Single-parent Children affected by Emergency Situations. DEPSOS, 11 February 2005. The 2004 Inter-agency Guiding Principles on Unaccompanied and Separated Children were developed by ICRC, IRC, Save the Children, UNHCR, UNICEF, and World Vision International.
Changing the Paradigm 9 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) immediate needs of hundreds of thousands Secondary separation is not the direct result of displaced people. There had been almost of a disaster but is brought on by the impact no effort to identify whether unaccompanied of the disaster on families’ ability to care. children were taken directly to institutions, This can result from the death, injury, or rather than the barracks, by relatives or disappearance of key caregivers; the impact community members. of the events on their mental health; or the loss of a home, livelihood, land, or access There was even less information about how to school for their children. It can also the disaster had affected the care situation result from the stress of living conditions in of children in Aceh, including the capacity Internally Displaced Persons (IDP) camps. of families to care for them. Were children It is the result of families having to make being placed in institutions as a result difficult care decisions in the face of long- of the disaster and if so, what were the term recovery from disaster. circumstances of those placements? Were families receiving the support promised It was also essential to understand the under the policy or were they left with little impact the disaster had on childcare choice other than relinquishing their children institutions and other residential facilities to others? Were the placements temporary such as Islamic boarding schools. Changes or long-term? Most of the efforts in relation to their population, funding, services, care to children focused on immediate separation practices and staffing would have long term (primary separation) as the direct result of the implications for children’s care in post- disaster, and not enough attention had been tsunami Aceh. paid to what Save the Children referred to as secondary separation.
10 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) A. The Rapid Assessment of Children’s Homes in post-tsunami Aceh (2005-2006)
Knowledge and data on child protection issues and good practices
What was done and why The approach taken Collecting accurate data on children’s care In collaboration with KEMENSOS and with situations was critical to the development financial support from UNICEF, Save the of policies and interventions that could Children undertook a rapid assessment of positively support family based care in the all childcare institutions in Aceh province. post emergency context. Save the Children Data was collected in two phases between advisers to KEMENSOS began by reviewing December 2005 and March 2006 by a available data from the FTR Network; from team of trained social workers deployed a major Aceh and Nias population census by KEMENSOS to support the Emergency conducted between August and September Response in Aceh. The team began by 2005; from provincial Social Affairs Offices; and surveying institutions on the list of the local from the government Coordinating Agency Social Affairs offices, and using snowballing for the Rehabilitation and Reconstruction techniques to identify institutions previously of Aceh (BRR- Badan Rehabilitasi dan unknown or recently built. Rekonstruksi). Early assessments indicated that most Aceh children who had been The survey questionnaires focused on the separated from caregivers or lost them in situation of children in the institutions; the the disaster had been taken in by extended timing and context for their placements, families and, in some cases, by neighbours including decision-makers; their parental and members of their communities. status; specific data for children placed after the disaster and for children placed More than 80% of separated children in the context of the conflict; contact and registered by the FTR Network as of May relationship with families; care plans, tracing 2006 were in the care of their families or needs and education status. The survey alternative families. 32,000 people living also collected basic data on the institutions, with displaced families were also found to including when they were set up, management be members of their own extended family. and ownership, staffing and funding. The That was almost 16% of those displaced, Survey did not seek to assess the quality and among those less than 5% were direct or appropriateness of services provided. A relatives, such as grandchildren, parents or report was produced presenting the key parents in law. However, data available from data and findings together with analysis and the Office of Social Affairs on childcare recommendations. institutions in Aceh was limited even before the disaster, and the data collection systems Key findings and learning appeared outdated and mostly developed The research found 207 childcare institutions to facilitate government funding rather operating in Aceh province, caring for over than to ensure appropriate registration and 16,000 children (60% boys and 40% girls). information about the children and services An additional ten institutions had ceased to received by them.
Changing the Paradigm 11 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The research also found that the institutions saw providing access to education as their primary function and mostly school-aged children were accepted. Children were expected to remain there until they had graduated from high school and institutions saw a child’s return to family care as a failure rather than a goal. Furthermore, the institutions were also found to recruit children actively, including from the IDP camps, using the promise that children would be able to access education until they completed it. The survey found that funding practices by government and non-government sources were both driving recruitment practices and pushing families into relinquishing their care role. The BRR, the agency in charge of reconstruction, had already provided institutions with USD 2.2 million in 2005, another USD 1.6 million in 2006 and was operate and at least 35 of the institutions planning to allocate another USD 1.7 million operating were not included in the data in 2007. Central government funding to these available from the Office of Social Affairs. The institutions was also found to be substantial, vast majority of institutions were privately both before and after the tsunami. Almost run (95%), with only ten government one million dollars had been disbursed in institutions in the province, but almost all 2005 under the KEMENSOS BBM Subsidy, received considerable government funding. a government social assistance program for ‘neglected children’ provided to childcare Seventeen new institutions were established institutions since 2001. The BBM subsidy in the aftermath of the tsunami and a number is calculated to cover the estimated cost of of new institutions were in planning at the food for a child per day. As a result, the more time of the research. Over 2500 of the children placed in an institution, the more children in these institutions were victims of funds it received. the disaster and had been placed as a result. Of these, however, the vast majority still had Local government had also provided an at least one parent alive and only 10% of additional USD 500,000 to institutions in children were real orphans (double orphans). 2005, through Deconcentration funds, funding This data highlighted that, contrary to media provided by central government to local reports, the disaster had not resulted in tens government following decentralization of of thousands of orphans with no families to services throughout Indonesia in 2000. The care for them. Instead, the survey showed survey further found that none of this funding that although half of these children had been was conditional on registration or compliance placed in the immediate aftermath of the with minimum standards of services, and no disaster, significant numbers were placed active monitoring system was in place to later, indicating that families’ capacity to care ensure children were receiving services or for their children was a primary factor and indeed in the institutions. that secondary separation was indeed a major concern in post-tsunami Aceh. No data or oversight system was found to be in place, either within the institutions or
12 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) externally, to enable accurate assessment response, which aimed to ensure access to of private assistance to institutions. basic food needs over a six month period, Anecdotal evidence, however, showed was only provided to families that lived in the that it was considerable, both in cash and IDP camps. The tens of thousands of families through donations of land and buildings. and relatives caring for children affected by Substantial new funding had been injected the disaster outside these camps were not into institutional care as a result of the eligible, in effect forcing families to remain tsunami, including from foreign agencies. in the camps in order to access essential Compounding this, government support assistance for their children. to displaced families in the emergency
Graph No 1: Year of establishment of the Children’s Homes in NAD Province. (March 2006)
100 86 80 72 60
40 22 9 20 2 2 2 1 0 1930-1939 1950-1949 1950-1950 1960-1969 1970-1979 1980-1989 1990-1999 2000-2006
Although the disaster that devastated Aceh numbers since the early 1980s (see Graph 1). had a major impact on the use of residential The number of institutions more than tripled care for children, the survey also found that between 1990 and 1999 and doubled again almost half of all childcare institutions in Aceh between 2000 and 2006. The research findings had been established after 2000. The picture indicated that fundamental changes were that emerged showed that institutions were taking place in children’s care in the province, a relatively recent phenomenon in that with the impact of the tsunami compounding province, with a sudden and significant rise in the situation, rather than creating it.
Anto’s story (15 year old boy), Aceh
Anto, who is from Meulaboh, is the only “They promised me I’d be sent to high school, child in the institution that comes from but I’m getting less and less assistance outside Lhoksemawe. He originally came now. I just get a bed and food. I’m also to this institution because his neighbor disappointed as all my friends are visited by knew the ustad (religious leader) there. their parents and given money, but nobody Anto is happy that he is in the institution gives me money, except for grandma when as it will enable him to get an education she visits now and again. But she’s getting and study as a santri (Koranic student). on in years. It’s a pity for her.” However, there is one problem preying on Anto’s mind – the amount of assistance he He recalls his experiences when the receives is becoming smaller. earthquake and tsunami struck.
Changing the Paradigm 13 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) “It was Sunday and I had just woken up. Mama “While we were taking refuge in the forest was opening the shop and dad was out. There I slept under a tree. There was no tent. was me, mama, and my younger sibling. I felt We ate what we could get, leaves, coconut the earthquake; the closets fell over, the shelves milk... I felt so weak. It was only after two collapsed. I heard a rumbling noise. Everyone weeks that a helicopter dropped food – shouted that the sea was retreating. There were that was the first time we ate real food. As lots of fish left high and dry so everyone ran out well as the helicopter, Marines also arrived to gather up the fish. I didn’t go. There was a big to help us. In the end, we got plenty of rumbling noise again, getting louder. Everyone help. Lots of Westerners arrived. We ate ran to the mosque. The sea rose. The wave was an ox that one of the Marines shot. The enormous. God help us. Everyone was running ox had run here from the village.” to the mosque and praying. I could only think that it was the end of the world. I remembered Anto lived in the forest for three weeks. mum. She was behind me. She told me to run. His grandmother found him there. She Dad was also running. Thank God, the massive had been searching the hills trying to find wave didn’t crest. If it had crested, we would all any of her children or grandchildren who have been dead. We kept running up into the might have survived. After that Anto lived hills.” with her, but as her financial situation was so difficult he was eventually sent to the institution.
14 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) B. Advocacy to shift financial and policy support towards family based care in the recovery phase (2006-2007)
Child Protection laws and policies, compliant with the CRC and other international standards and good practice
Adequate funding
An aware and supportive public
What was done and why The findings from the Rapid Survey of and Jakarta. The Head of the Directorate for Childcare Institutions had major and Children Services immediately acted on the immediate implications for children’s well- findings by redirecting proposed assistance to being in the transition from emergency to institutions by foreign governments towards recovery and longer-term development. It the provision of educational stipends and had highlighted that the government policy scholarships for tsunami-affected children on separated and unaccompanied children through their families.7 As a result of discussions was not being implemented and that with the main reconstruction agency in Aceh, the bulk of funding allocated to children an inter-agency Working Group on Family affected by the tsunami was supporting their based Care was set up to review funding for institutionalization, rather than care in their institutions and to identify targeted assistance families. that could be provided instead to support family based care for vulnerable children. The research also provided a firm foundation for discussions with the Ministry of Social The report was also given a high profile public Affairs and the local Social Affairs office in launch in Jakarta in November 2006, headed Aceh about their approach to assistance to by the Director of Children Services, creating vulnerable children. Most noticeable was considerable media interest in Indonesia and the widespread belief, in Aceh and nationally, abroad. Media work by the team focused on that childcare institutions primarily cared raising public awareness of the situation of for ‘orphans’, and the extent to which social these children and on reframing the public programs for vulnerable children had relied discourse on ‘tsunami orphans’, correcting on them. Challenging these assumptions and the widespread perception that Aceh was redirecting services and assistance toward overwhelmed by children without families. 8 families would entail major changes at personal, organizational and financial levels. Key findings and learning A major challenge in redirecting assistance to The approach taken families was a lack of existing models. Several The research findings were widely humanitarian agencies were providing direct disseminated in high level technical meetings assistance to families following the disaster, with all key stakeholders in both Aceh through cash for work, cash grants or loans,
7 Assistance from the government of Oman, for example, initially focused on the provision of institutional care, was developed into a scholarship scheme for children who had lost one or both parents through the tsunami, supporting their education until they reach 18. 8 The team contributed to several international and national media stories on the situation of tsunami-affected children in institutional care, including through BBC World Service, Radio 4, ABC, Kompas and Detik online among others. 8
Changing the Paradigm 15 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) micro financing initiatives, scholarships Working through the Working Group on and educational stipends, and in a few Family based Care in Aceh, the aim was to cases psycho-social assistance. Most of support the development of a comprehensive the livelihood initiatives were targeted at strategy by key stakeholders to redirect affected communities but some also had funding away from residential care services specific components to reach particularly and towards direct support to their families. vulnerable households, including female or single parent headed households, households The learning process was, however, seriously with widows, and families caring for orphans hampered by a lack of systematic data or vulnerable children. Very few, however, collection, in particular impact assessments focused their assistance with the goal of by agencies providing these interventions. preventing family separation or strengthening This problem extended to other tsunami family based care, and care outcomes were affected countries, limiting the possibility of rarely monitored. cross-country learning. Lessons could not be drawn from interventions and strategies that Save the Children, together with could be expected to impact affected families’ other agencies providing assistance to ability to care, including the availability of unaccompanied children, also delivered small death and disability compensation, or liability cash and in kind support to the families of for loan repayments in the aftermath of a these children, including foster families, to disaster, for example. support the reunification and reintegration process. The lack of evidence on effective It became clear that developing evidence economic interventions to support families about the links between social assistance in their care role presented a real challenge to vulnerable families and children’s care to redirecting assistance towards family and protection was badly needed. It based care solutions. also highlighted the need for an overall framework for supporting family based care In early 2007 the Save the Children team as part of an emergency response, including collaborated with two livelihood specialists evidence of effective interventions that can working in Aceh in an attempt to pull together be adapted to a range of situations and learning from the myriad of economic contexts. Having this knowledge base would interventions provided in the post-tsunami enable agencies to avoid poor practices and context.9 It hoped to find evidence of effective learn by testing the effectiveness of proven interventions that could support family based ones in different contexts and in partnership care in the post emergency phase. with the families and communities affected.
9 Adams, L.& Kendrick, A. (2007). DRAFT. Helping Families Cope and Care: Direct Economic Support for Families. A review of post-tsunami economic interventions aimed at supporting families in livelihoods recovery, with special attention to interventions targeted at the poorest households. Compiled for the Working Group on Family-based Care, Aceh.
16 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) C. The Rapid Assessment of Islamic Boarding Schools (Dayahs) in post-tsunami Aceh (2006-2007)
Knowledge and data on child protection issues and good practices
What was done and why The dayah (pondok pesantren in the rest of Immediately after the tsunami, many leaders Indonesia) is an institution for education of dayahs provided accommodation and and Islamic teaching with a long history in education for affected children. It was Indonesia, with the first dayah established estimated that thousands of children were in eastern Aceh in the 10th Century. 10 In placed in dayahs all over Aceh following the Acehnese culture it is common practice to disaster, but their numbers, their situations send children to a dayah for their education.11 and their relationships with their families Children are sent there from about age were unknown. In general, dayahs have seven to ten until the age of 18-19 years. very limited physical and technical capacity Most children reside inside, and considerable to accommodate children, particularly variations have been found depending on the traditional dayahs. Facilities and numbers of location of the dayah. skilled teachers or carers are often limited and inadequate compared to the number of In Aceh, dayahs function not only as places children in their care. of religious education but also as places of social protection. Dayahs are trusted and It was critical to understand better the role hold a strong position in most communities these institutions were playing, and the issues in Aceh. Families facing challenges in the faced and services received by children placed care or education of their children will often in them. Research on the dayahs would resort to placing their children in a dayah.12 provide a more complete picture of the impact They have also played an important role of the disaster on children’s care situations in caring for children whose families have and the extent to which the assistance they suffered through the conflict in Aceh. In received was meeting their needs in both the addition, some dayahs have registered or short and long term. The Save the Children established separate childcare institutions, team in KEMENSOS collaborated with Save often in order to access funding from the Children in Aceh, the provincial Office the Ministry of Social Affairs. The roles of of Education, the Office of Religious Affairs, the dayahs as educational institutions and the Association of Dayah Religious Leaders places that care for children have become (HUDA) and UNICEF to undertake this work. increasingly intertwined.
10 Data from the Ministry of Religious Affairs for 2004-2005 stated that there were 14,798 pondok pesantren in Indonesia. There are three types of pesantren/dayah: Salafiyah, traditional pesantren where education is mostly Koranic; Khalafiyah, modern or integrated pesantren that use the national curriculum but integrates elements of the traditional pesantren education, including Arabic language, as additional subjects; and combination pesantren, which provide side by side both national curriculum and traditional pesantren education. Nationally 47.5 % of pesantren are combination pesantren, 31 % modern/integrated and 21.5% traditional pesantren. 11 Two Ministries supervise education in Indonesia: the Ministry of Education oversees about 84 percent of schools, and the Ministry of Religious Affairs oversees the remaining 16 percent (World Bank, 2012). Although most primary schools are public, a majority of junior secondary and senior secondary schools are privately run. 12 The cost of education in a dayah is generally a fraction of the cost of attending even a public school, particularly in traditional dayahs, and for children at junior and secondary levels.
Changing the Paradigm 17 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The approach taken faculty members supervised the fieldwork and ensured appropriate coordination According to the provincial Department of between the teams. Experts in quantitative Religious Affairs (DEPAG) there were 857 research methods from the University of dayahs in total in Aceh province (57.5% Indonesia and Atma Jaya University were also combination dayahs, 31.2% traditional dayahs brought in to support the development of and 11.3% modern dayahs) and research could sampling strategy and the data collection and not be conducted in all of them. Sampling was analysis. Fieldwork was conducted between done using a clustering approach to ensure November 2006 and May 2007. representation of districts according to the extent to which they had been affected by Key findings and learning the disaster. Although most children affected were likely to be found in areas that were The research highlighted the key role dayahs directly struck, many dayahs were destroyed were playing in the education and care of or badly damaged in those areas. Families affected children and young people in the were also moving to non-affected areas of aftermath of the tsunami. Almost 13% of the province in search of safety and better students in dayahs surveyed were victims of living conditions. In order to understand the the tsunami (4,481 from a total of over 35,000 extent of that movement, it was essential to students in 132 dayahs). The research estimated survey dayahs in areas not directly touched that there were over 15,000 children under by the disaster. Two thirds of districts/ 18 years old whohad been directly affected by municipalities (14) and 20% of dayahs in Aceh that disaster in the dayahs of Aceh, five times were surveyed using simple random sampling more than in childcare institutions. Although methods. not surprising because there are more dayahs in Aceh than institutions, the findings Access to dayahs was also a challenge. As highlighted that families and communities a result of the 30-year conflict, there was were relying on dayahs to provide support widespread mistrust of non-Acehnese, to these children. in particular Javanese who dominate the Indonesian government and the military. The lack of a regulatory system or any form of monitoring also meant that dayahs were not used to ‘outsiders’ asking questions. A strong partnership with local Islamic organizations was essential to enable this research to go forward. A reference group was established to plan and develop every aspect of the research process, with representatives from the Association of Dayah Religious Leaders (HUDA), the Network of Former Dayah Students (RabithaTaliban) and Muhammadiyah in Aceh playing key roles. Data collection was conducted using Acehnese data collectors with strong knowledge and understanding of dayah culture who were trained especially for this work. Field researchers were selected from the Rabitha Taliban network of graduates from the dayahs, graduate students, and lecturers from local universities. A team of two senior
18 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The data also confirmed the assumption that there were more tsunami-affected students in dayahs along the affected coast of Aceh (76% of affected students) than in non-affected areas. The majority of these students were children and school-aged, in line with the educational purpose of these institutions (38% between 10 and 14 years old and 36% between 15 and 17). Although a relatively small gender difference was found in students in the dayahs (52% males An Islamic boarding school with a childcare for 48 % of females), the difference was greater institution in Aceh in terms of tsunami-affected students, with 54% of males compared to 46% of females, indicating a difference in placement patterns for these The research also provided insight into the children and young people.13 way dayahs operated and the services they provided to their students. It confirmed In line with the findings of the research in variations between districts in terms childcare institutions, most of the tsunami- of whether the students resided in the affected students still had both parents, with institution or went home to their families. only 6% real orphans, 14% who had lost their While 64% of students resided inside the fathers and 7% who had lost a mother. Even rest did not. In some districts of Aceh though the number of students affected by known for having more traditional dayahs the tsunami who had lost both parents was rather than modern or combination dayahs, small, it was double that of students who had it was found that most students lived outside not been affected. the dayahs. In other districts almost 90% of The pattern of placement also indicated students resided in the dayah. The research that families were relying on dayahs for found that modern/integrated dayahs were the care an education of their children as a far more likely to be residential, while most direct result of the disaster. A quarter of the traditional dayahs in Aceh (84%) provide both students were already in a dayah when the residential and non-residential education. disaster struck, but the majority were placed The number of students in a dayah was on either immediately after (20%), within six average 268, but about 10% of dayahs had months (25%) or within a year (24%).14 Most between 500 and 1000 students. All but one students had been placed in the dayah by of the dayahs surveyed were privately run, their parents or legal guardian (82%). Over the majority as family businesses. There were 5% of students had placed themselves and considerably more male staff than female another 5% were placed by decision of the staff (66% male) and most were teachers, dayah management. A small number had also with very few care staff in almost all dayahs been placed by neighbours (1%) and religious (3% of staff). Another important finding was leaders (0.8%). Once placed, the tsunami- that about 40% of staff in all types of dayahs affected students were expected to stay were volunteers, raising questions about there until completion of their studies. Only the capacity of these institutions to provide 12 students (0.4%) were in the process of skilled human resources to meet the needs being returned to their families. of children, particularly those residing inside.
13 Most dayahs provide co-education for both females and males, with a relatively small number of institutions providing single sex education (six dayahs are male only and three dayahs are female only). 14 According to the Regional Office of Department of Religious Affairs NAD (2005) 160 dayahs were damaged in the earthquake and tsunami and 4,219 santri (students) and 294 ustadz (teachers) were killed.
Changing the Paradigm 19 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Although dayahs were found to play an Technical challenges in the data collection and important role in Aceh immediately after analysis, however, had delayed the publication the tsunami, the implication of taking in or of the report, limiting its impact. The process caring for children affected by the disaster emphasised the importance of involving key did not seem to be fully considered by local actors in the research process but also these institutions. Their function remained that this created considerable capacity issues, primarily the provision of education, and they with major time and resource implications. regarded children placed in the institutions after the disaster in the same light as regular The learning and advocacy work fed into students. The research found that dayahs had the strategic goals and responses of Save the not added services or changed the manner Children in Aceh. A family based care program in which they operated to respond to the that worked with local government and particular needs of these children. communities was established to follow up on the recommendations in the two districts of Specific support to meet the needs of Aceh with the highest number of institutions. tsunami-affected children was not provided, In partnership with SEPAKAT, a local NGO, for example psychological support or legal prevention work was conducted in 18 villages and administrative support for children where children had been placed in institutions, who needed to trace or complete civil to identify and address with the families the documents. No systematic efforts were push and pull factors of institutionalization made to trace families or reunite children and prevent family separation. with family members. Tsunami-affected students were generally found to have come This work supported family strengthening from areas close to dayahs, yet almost 44% activities, including facilitating family visits of these students were only visited by their to children in institutions, scholarships for parents a few times a year and 61% went particularly vulnerable children, work through home only once or twice a year, as regular community level protection networks and students did. This highlighted the fact that children’s groups, and educational meetings dayahs did not recognize the importance of and discussions on the principles of family maintaining family relationships when many care under Islam. The program also worked of these children and families had incurred with the management and staff of five deep loss and experienced traumatic events. institutions, reviewing and improving the quality of services provided, and reunifying A report was written by the Save the Children children who could be reintegrated into advisers combining major research findings their families with appropriate support. and recommendations, and published jointly with the Aceh Department of Education and Advocacy was carried out at the provincial UNICEF. Key conclusions were disseminated level in collaboration with the provincial widely in the province and well received by Office of Social Affairs (Dinsos), UNICEF, partners including, critically, the Association World Vision, and Child Fund among others, of Dayah Religious Leaders. The report to support the adoption of a local child highlighted that renewal and strengthening of protection law (Qanun) that would integrate contact with families, recovery from traumatic key principles of children’s rights. Provincial experiences, reintegration into community level guidelines were also developed with life, and rebuilding of feelings of security and Dinsos to strengthen the accreditation stability were extremely important for children system for childcare institutions. The team in in this post-disaster period. It recommended KEMENSOS then turned to the question of strengthening of the limited services provided whether the findings in Aceh were particular by these institutions to respond appropriately to that area or to the emergency situation, to the needs of these children. or instead a reflection of a much broader reality in Indonesia.
20 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Acehnese girls (photo by Tom Riddle)
Ana, 18-year-old girl from West Kalimantan
Ana is the second of five children. Her pay even more attention to Ana’s father, and family is Dayak and they live in Selabi village, her husband in turn became jealous and had located approximately one day away from a fight with Ana’s father. As a result, Ana’s Pontianak, the capital of West Kalimantan. father was forced to flee to his brother’s Ana entered the childcare institution near house, leaving the children alone at home. Pontianak when she was seven years old. She has been there for the last 11 years. If A day later, Ana’s father returned with his Ana wants to go home to see her family, brother to resolve the problem with this it costs her around USD 20 for a round woman’s family. Both Ana’s father and the trip, which involves a six hour bus ride, woman were ordered to pay fines under adat two hours on a minibus an d another two (customary) law to the community’s leader. hours on a motorcycle taxi. Since then, Ana’s father has remarried and converted to Islam. Ana’s siblings have also Ana’s family followed their father’s lead and converted, with the exception of the third child in the Ana’s father was a rice farmer. He used to family and Ana, who remains a Catholic. go to work to the fields every day and Ana’s Ana has forgotten most of her family life mother often used to go to help him. All before entering the institution. of Ana’s siblings have been to school. Her older sister has graduated from high school Entering the institution and lives with her family in Pontianak. Ana entered the institution in 1996 when Ana’s mother passed away in 1994 when Ana she was seven. However, she did not enter was five. Ana’s grandmother told her that the institution of her own will, explaining her mother had killed herself. Apparently she was duped into it. Her father tried to she had become distraught because another persuade her to enter by arguing that it woman liked her husband and, consumed would allow her to get an education. Ana by jealousy, she killed herself. After Ana’s refused as she was small and she did not mother’s death, the other woman began to want to be separated from her father and
Changing the Paradigm 21 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) siblings. In order to make sure she entered Life in the institution - relationships the institution, Ana’s father lied, telling her Ana is now 18. She says she needs a close that she had been invited to visit her uncle friend with whom she can share confidences in Pontianak for three days, after which she and affection. Dating is banned in the would be coming home again. Ana wanted institution, but Ana has already violated to visit her uncle, and did not realize that that rule on a number of occasions. She after she got to Pontianak she was going to first had a boyfriend in junior high school, be placed in the institution. a boy who was also living in the institution. After being left there, Ana wept continuously. The staff found out that they were hanging The institution’s authorities had to call her out together in the boys’ residence. Ana uncle and it was agreed that she would be was scolded and summoned by the head brought back to his house on a temporary of the institution. As punishment she was basis. Her uncle’s house was quite close to the ordered to clean up the hall and make out institution. During her time there she was a formal declaration to the effect that she continually urged to enter the institution would never repeat the offence. so that she could get an education. Her Despite the punishment, Ana was not put uncle told her that if she did not agree to off and continued the relationship with her go, she would have to walk home to her boyfriend. When asked why she persisted village by herself. It was after this that Ana with the relationship, Ana replied, “We finally agreed to enter the institution. were fond of each other, in love, right?” As a result of her feelings, she was not afraid Adjusting to the childcare institution of being caught and punished again. The At the start of her time in the institution second time she was caught, both she and Ana greatly missed her family. She was her boyfriend were ordered to run around somewhat consoled by the fact that her the yard five times. They were also again uncle would visit her almost every night and ordered to make out formal declarations he would teach her to read in the Indonesian that they would not repeat the violation. language. He would also bring her extra Some time afterwards, that relationship food almost every week. Slowly but surely, came to an end. Not long afterwards her Ana came to accept living in the institution. former boyfriend started a relationship One of the problems she faced during the with a friend of Ana and the staff found out adjustment period was that the means about it. The two of them were expelled of communication in the institution was from the institution because they were Indonesian but in Ana’s village only the local caught sleeping together in one of the girl’s language is spoken. Ana’s uncle was a hard rooms. In fact, two couples were sleeping taskmaster when teaching her Indonesian. in the same place. He would shout and bang the table a lot if Before being expelled these couples were he felt Ana was not attentive enough. punished. On the night in question all of the After she entered the institution, Ana was children were woken up at 2 a.m. by staff enrolled in grade 1 of a State elementary beating on the windows. They were then school in Pontianak. On her first day at assembled in front of the institution and school, she was accompanied by a staff ordered to hit the four offending children member who waited to make sure that she as hard as they could. If the children did was not too upset. By the time a month not use all their strength staff members had passed, Ana had started to adjust, and would hit them instead. All four of the could be left at the school by the staff. offending children were reduced to tears.
22 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The next day, a formal disciplinary meeting The director of the institution had heard was held and, as a further punishment, the that Ana and her friend had not paid their children were ordered to run around the school fees for four months. institution until they were out of breath. These punishments were ordered by the Ana was summoned by the staff member director of the institution and witnessed by in charge of paying the school fees, who all the staff. After that, the four were kept was upset by the fact that other people in isolation for two months before being might think he had embezzled the money expelled. earmarked for the children’s school fees. “(He) was clearly upset and emotional. He After breaking up with her first boyfriend, said that the director had said the school fees Ana became involved in a relationship with had not been paid for four months. ‘ Why did a boy from outside the institution. They you say that?’ he asked her. He said he had often met up outside or at the house of her already paid the money, except for this older sister. The institution’s authorities month, and that was because the money were aware of Ana’s relationship but no had not come through. “Who reported it to action was taken as the couple met outside. the Head?” he demanded to know. If her boyfriend came to the institution, though, he would be ordered home He accused Ana of running to the director within five minutes by the security guard. and warned her never to do so again. The Although Ana was not punished for this next day, after returning to the institution she was nevertheless frequently warned from school, Ana was summoned again not to return late in the evening and not to by three other staff members. She was become too intimate with the boy. accused of spreading damaging stories about the type of food served for the Life in the institution - speaking out breaking-of-fast meals and other aspects of life in the institution. All three adults Another incident made the director of scolded her. “I couldn’t accept it as I felt I the institution angry with Ana. He had had nothing wrong,” said Ana. been informed by a friend of his who was a teacher at Ana’s school that Ana The whole affair had embarrassed the had recounted critical stories about the director, who couldn’t believe that children institution to her teachers at school. That from his institution would spread “such evening, the director called the institution’s stories”. Two days later he summoned Ana duty care worker, psychologist and the staff and her friend. He told them, “Don’t ever member in charge of school fee payments talk in public like that again. It will be you who (SPP). Ana was summoned by one of will suffer, if it ever gets into the newspapers. those staff who scolded her, saying she had This childcare institution could be closed. If this been told to do so by the director of the place is closed, it will be you who will suffer, not institution. us. We will continue to be paid.” According to Ana, “I wanted to explain, but (the director) “She said that what I had done was unacceptable didn’t want to hear.” and that I should have kept my mouth shut,” Ana recalled. She protested as she did not Punishments believe she was guilty of disparaging the childcare institution, particularly to her Every violation of the rules results in a teachers at school. After being scolded by summons. The child is first spoken to by this staff member, Ana was also asked by the senior care staff, and then by all the a number of other staff to explain herself. others in turn. The child is subjected to a scolding and told what improvements
Changing the Paradigm 23 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) are expected. Whenever a child is caught She was ordered to clean the study room committing a violation, he or she is required and hall. These rooms had to be swept, to make out a declaration stating that the mopped and dusted. Ana had to do this offence will not be repeated. for three days after returning home from Such a declaration might read as follows: school.
“Declaration Formal Disciplinary Hearings I promise not to repeat this violation of “I can’t remember how many times,” said the rules. If I do repeat this violation, I am Ana when asked how many times this willing to accept a harsher punishment punishment had been given to her. Ana than the one I received this time. I am described the formal hearing process also willing to accept expulsion from the as follows: all the staff members ask the childcare institution.” child why he or she had done what they “They must have a lot of them. I don’t know did. Then they would take turns scolding where they keep them,” said Ana when asked the child. No matter what the child said, how many such declarations she had signed. it would not be accepted. The institution staff as well as all the other staff from the Ordered to run around the complex are present at such a hearing. institution’s complex “Sad, angry, afraid, ashamed, remorseful,” were This punishment had been imposed on Ana the words used by Ana to describe how she twice. The first time was on account of would feel during a formal hearing. “If I was her relationship with her boyfriend. The called before a hearing, I’d be too afraid to say second time was when all the children were anything, so that in the end everyone would ordered to run around the institution as a presume I was guilty. Even if you did have a form of collective punishment for a number good excuse it wouldn’t matter as they wouldn’t of offences that had been committed by believe you. It would only make them angrier.” different individuals. Being called before a hearing was the Such collective punishments might be worst form of punishment for Ana. “If imposed, for example, in cases where I am ordered to clean up, no problem. But individuals had neglected to do their being called before a hearing ... ooohhh!” chores, failed to go to bed on time, or were said Ana, while covering her face with her found in the opposite sex’s dormitory. hands. “(The director) said that if they were punished Ana’s wishes separately, then they would only get sympathy from their friends. So, it was fairer if everyone • If something comes to the attention of was punished.” Even though all were the institution’s authorities, they should punished, none of the children were angry: not just take it as gospel without first “If you want to get angry, get angry with your verifying it. They should listen first to friends”, the director said. But who wants to what the child has to say and why he or get angry. If you get angry with others, they’ll she did what they did. be angry back to you” said Ana.” • The punishments imposed for infringements of the rules should not Cleaning Rooms be too severe, especially punishments like being ordered to run or crawl in the This sanction was imposed on Ana for drains, and being subjected to collective violating the ban on having boyfriends. punishments by the other children (slapping, pinching).
24 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) • There is also no need for formal hearings Mrs R (staff): “In reality, she’s a quiet girl, a to be attended by so many people, as this withdrawn child. As far as causing trouble only frightens the child so much that he goes, she’s just normal. The only problem or she is not able to speak. was this case of misleading information • The care staff in the institution should not recently. (The director) received a text show favoritism. Normally, the Javanese message saying that Ana hadn’t paid her side with other Javanese. school fees for four months, and that she was fond of talking about what went on in People’s comments about Ana the institution to outsiders.” Ms. W (care staff): “Ana is OK. There are T (a child in the institution): “She’s nice. others who are a lot worse than she is. Ana She isn’t stuck-up, and she doesn’t make is still afraid of the staff and she’s polite.” distinctions between people. She often breaks the rules.”
Changing the Paradigm 25 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) III. Understanding child protection responses in Indonesia
Following the work in Aceh, the Save country adoptions and it collected no data the Children team began working with on domestic adoptions, nor conducted any KEMENSOS to build a better picture of the activity to support or promote it. Similarly, use of residential care for children deemed the law had provided for children to be ‘at risk’ in Indonesia. It reviewed laws and fostered by individual families, yet no foster policies in place to support children’s care care system had been established, no rules or and protection needs and analyzed budgets guidelines adopted, and the provisions under and funding priorities. Following ratification the law for the removal of parental rights and of the UN Convention on the Rights of the the placement of children in formal foster Child (CRC) in 1990, Indonesia adopted a care had never been used. A regulation on new law on Child Protection (Law No 23, guardianship had been in the process of being 2002), which sought to integrate the CRC drafted for a few years but it did not initially into national legislation. This law brought relate to children’s care needs; instead the concepts of child protection and children’s focus was inheritance and decision-making in care under a child rights framework. Articles relation to marriage. 7 and 14 in particular recognised that a child has the right to know and be brought up KEMENSOS on the other hand promoted by his or her parents, and that separation and provided considerable financial support should only be required when clearly in the to 18 different types of institutions for best interest of the child and as a last resort. children and other vulnerable groups (one for each “social problem”), nine of them Law No 23 also articulated clear responsibility focused on different groups of children and of the government and State institutions in another eight providing services for both providing ‘special protection’ for children children and adults with ‘special needs’. It also deemed at risk including of abuse, neglect developed its own ‘good practice’ models of and exploitation as well as a result of childcare institutions and residential based emergency situations (Article 59). Although interventions at great expense in the hope of the law established a basis for child encouraging local governments to replicate protection interventions that would deliver these. The Ministry lacked both a regulatory both preventive and remedial interventions system and proper data for virtually all of to children in their families, supporting the these institutions and the children who ability of parents and other caregivers to take received services within them. 98% of care of children appropriately, or providing institutions are owned and run by private children who needed it with alternative family organizations. No licensing system was in like care, the system and services provided place for these institutions and registration were primarily focused on residential care was only required of the parent organization interventions. as an administrative formality, with no compliance requirement or monitoring The system for children in need of alternative system in place. care was also focused on residential care solutions. Although the Child Protection KEMENSOS guidelines on services for Law recognises adoption as a positive option “children with problems” (anak bermasalah) for children in need of alternative care, only or “neglected children” (anak terlantar) were a handful of institutions nationwide were focused primarily on institutions, with no authorised by the Ministry to facilitate requirement to prioritize support for children adoptions. KEMENSOS’ own mechanism in their families. The Ministry’s budget for to oversee them was focused on inter- the provision of services to vulnerable
26 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) children was also almost entirely dedicated basis. The Save the Children team also found to residential care responses, through direct little awareness of the potential negative funding to over 4000 institutions (2007) impact of institutionalization on children. and through decentralized funds to local Residential care was generally seen as best authorities. The Ministry also implemented for children of families considered to be some poverty reduction initiatives; however, ’without capacity’ (’tidak mampu’); families they were mostly ad hoc or short term, and considered too poor and uneducated to not aimed at addressing longer-term care provide proper care, guidance and discipline. and protection concerns within vulnerable This situation was clearly leading to a rise families. in the number of institutions across the country, as organizations were encouraged Government social workers were found to see opening an institution as a means of to be mostly an administrative workforce accessing government funding. operating primarily on a project management
Changing the Paradigm 27 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) A. The Quality of Care in Childcare Institutions (“Someone that Matters”) (2006-2007)
Knowledge and data on child protection issues and good practices
A skilled child protection workforce
Children’s voices and participation
What was done and why The approach taken The serious lack of data available on the The type of institution selected for this situation of children in residential care in research was the ’panti asuhan anak’, childcare Indonesia, and the fact that the paradigm institutions often referred to as ’orphanages’ of residential care as protection was so or ’Neglected Children’s Homes’. Although entrenched, meant that Save the Children the Indonesian government promotes 18 needed to build a knowledge base about different types of residential care facilities, the real situation of these children and the most institutions are panti asuhan and there protection issues they faced. It needed to are only a handful of other types of institution do so not just by carrying out research but in the country. These other institutions are by building the capacity of a group of key generally government-run and most are for social workers and policy makers. A team of children or mixed populations with disability. dedicated and knowledgeable ‘champions’ who It was decided that separate research would could lead fundamental changes from within be needed to do justice to the different the system to the way services were provided issues faced by children in those institutions. to children was essential. These individuals would be able to understand and advocate This study did not seek to draw statistical for the implementation of recommendations, generalizations about the situation of and would also be in a unique position to children in institutions but instead to provide support their implementation. in depth information and case studies about the children and institutions. The The team leaders selected for the research institutions were chosen to ensure that they were high-level policy makers and researchers were as representative as possible of the from within KEMENSOS, including the Deputy diversity of institutions in a given province. Head of Planning, and the head of the specialist The provinces were also chosen to ensure program at the National School of Social that Indonesia’s diverse social, cultural and Work (STKS) in Bandung. The researchers economic contexts were represented. came from the social welfare/social policy departments and schools of social work As a result, the research and case studies in the foremost universities in the country, provided comprehensive information including STKS, the University of Indonesia about the care situation of children across and the Islamic State University in Jakarta. a sufficiently diverse range of institutions The research was conducted in partnership to enable the identification of trends, with KEMENSOS and with financial support approaches and understanding of the care of from UNICEF. children in institutions.
28 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Quantitative analysis of existing data was also nine considered themselves as ‘social conducted whenever possible to complement organizations’, not faith-based, although the qualitative work and a review and analysis most served members of a particular faith of the legal and policy framework was given or incorporated religious values in their to ensure the broader context of residential approach to services. care in Indonesia was understood. Thirty institutions were mixed, with both boys A total of 36 institutions were selected in and girls residing, and seven were single sex six provinces (six per province) and another institutions (four for boys and three for girls). institution, the KEMENSOS national model The size of the institutions and the number of childcare institutions, was selected as of children receiving services in them were a comparison to be assessed at the end of also part of the selection criteria to ensure the research. Eight institutions selected diversity. Twenty institutions selected cared were run by local government, one by the for 100 to 200 children and five institutions central government and 28 were privately cared for less than 20 children, with the rest run. Twenty-five institutions had identified as caring for between 20 and 100 children. The faith-based, including 16 Islamic institutions, six provinces selected were Aceh, Central four Protestant, three Catholic, one Java, Maluku, North Sulawesi, Nusa Tenggara Buddhist and one Hindu institution. Another Barat (NTB) and West Kalimantan.
2.
The development of the methodology and The research framework was divided into tools, the training of the teams and the piloting seven key areas including: the profile of of the research tools took place from July the children and the institutions, the care to September 2006. A reference team that approach or philosophy of the institution, included senior research team leaders, policy professional practice in relation to both makers and practitioners in the Ministry of care and protection, the personal care Social Affairs, as well as faculty members from provided, staffing, the resources accessed key universities, was established to support and available, and the administration of the the development of research tools. The institution. research methodology used the standards for quality childcare developed by Save the It collected systematic information on the Children UK in Eastern and Central Africa, institutions, their history, management, and tested in a number of countries across staffing, funding, policies and vision and that region, as its starting point. missions; on the children in their care, whether residing inside or outside, their
Changing the Paradigm 29 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) identity, history of placement, parental reports. Save the Children’s organizational status, educational status, and involvement Child Protection Policy was used to frame in decision making, contact with families or responses to protection concerns identified significant caregivers, relationships with peers, during the research. staff and with the surrounding communities; and on care placement, planning and review Key findings and learning practices, child protection practices, as well as the range of services and facilities provided, The research, “Someone that Matters: the reflecting the perspectives of management, quality of care in childcare institutions in staff, children, teachers, religious leaders and Indonesia”, confirmed that residential care other relevant community members. was the primary form of intervention for children deemed to be facing social The field research took place in two stages, problems, both by government agencies and the first from September to October 2006, the mainly faith-based organizations running and the second from January to March 2007. most institutions. Using available national A separate assessment of the KEMENSOS and provincial data, it was conservatively model childcare institution was carried out estimated that there were 5,000 to 8,000 in May 2007. In depth questionnaires and institutions across Indonesia caring for up to semi-structured interviews were used with half a million children. Based on the research the management and personnel from each conducted in the six provinces and later in institution, the parent organization, the other provinces, the real number is likely to children, parents, teachers, representatives be around 8,000, one of the highest numbers of the local authorities and communities. of residential care facilities for children Separate focus group discussions were worldwide. conducted with staff, teachers and children, and observations carried out by research The research found that most children in teams living in the institutions for periods of institutions assessed did not lack parental two to four days. care or families and only 6% of them were real orphans. Instead, the children were placed in The informed involvement of children these institutions primarily by families that was sought at all times. A child friendly felt themselves, or were deemed, to be poor notice was posted in various places in each (tidak mampu) and unable to provide for institution informing the children of the their children, especially in terms of paying research, identifying the aims, the ways they for their education. While further research could get involved, and the individuals to was needed to understand the complex which they could report any suggestions, factors leading families to relinquish their ideas or criticisms about their situation or children into care, there was no doubt that the research. A consent form was developed they saw institutions as the only means of and used to ensure that children were aware securing their children’s education. Equally, of how the information they gave would the institutions saw their role not in terms of be used. Consent forms for the use of responding to the care needs of children but photographs and video cameras were also instead as enabling their access to schools by used. paying for their education from primary level Bearing in mind the particular vulnerabilities until senior high school. of children living in an environment where Providing access to education was found power relations are starkly delineated, the to be the primary aim of most of the safety of the children was the paramount institutions. Some institutions ran schools consideration. As a result, the identity but most children went to schools in the of the children involved was protected local community. Little if any attention was and a coding system used in the research
30 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) and institutions to absorb new recruits. The research also found that the emphasis on institutionalization was made worse by government assistance, in particular the annual BBM Subsidy that was only available to support children in institutions. As a result, institutions recruited children actively and the criteria used for admitting children were principally the economic status of the family and the child being of school age. Caring for the child was rarely seen as a key function by staff and management but instead was understood as a by-product of the child needing to stay in the institution until graduation. The research found what it called a “lack of care in Care”. That placement in the institution led to family separation and children having to choose between their right to be cared for by their families or their right to an education was rarely seen as an issue. Staff often equated economic poverty with social and emotional incapacity given to children’s emotional, developmental and tended to speak of the children’s families or psycho-social needs except in two as a distraction or even a potential negative institutions that focused specifically on influence. Whatever was provided by the creating a substitute family environment. institution tended to be seen as better than The key criteria for selection for most of the anything that could possibly be provided in institutions were that the child must be: of their own homes. school age; from a poor/disadvantaged family; able to ’take care of oneself’, including washing, Placement review was almost always cooking and carrying out the daily chores in undertaken in light of a child’s performance the institution; be healthy and willing to abide at school and obedience to the rules of by all of the rules of the institutions. Thus the institution, rather than the child’s most children in the institutions assessed changing care needs. There were virtually were of school age, with 85% aged between no attempts at assessing the changing family 10 and 17. situation during a placement, including that family’s capacity to care, in order to reassess Screening was generally not carried out to whether a child needed to continue being in determine whether a child actually needed the institution. Graduating from high school, residential care, and supporting the child in running away or being expelled were the his or her family was rarely seen as an option. only ways children left care. Filling quotas, and in particular replacing children who had left the institution after Children tended to be placed in the graduation, was found to be the primary institutions for a prolonged period of time, consideration for institutions. For faith- generally from elementary to senior high based institutions that aimed to develop the school (up to 12 years), and were given next generation of its ‘cadres’ or members, limited opportunities to visit their families, another consideration was the needs of the siblings and friends outside the institutions. organization and the capacity of its network Going home was usually allowed only once
Changing the Paradigm 31 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) A father’s choice (Central Java)
The house was very dark and yet the would stay there ... it was already too late.” expression on the face of Rudi’s father could still be seen as he explained how he Rudi’s father cannot get used to his son had finally agreed to place his son into a being cared for by others. The institution childcare institution. There was no doubt discouraged him from visiting too often, that this was a poor household. Dirt floor, as it is deemed disturbing and could result a roof made of leaves and no furniture in jealousy among other children residing to speak of except a couple of wooden there. Instead, he explains, whenever benches. Rudi’s father was a tailor by he has enough money he gets on a bus trade. His eyesight had started to go and and goes there. He stands outside the it became increasingly tough to work. institution and watches his boy as he walks to school. He doesn’t need to talk His wife and two daughters looked on to Rudi, he just looks at his face to know nervously as he explained what had that he is okay. Then he gets on the bus happened. About the same time things and goes home. As he tells this, he tries to were getting tough at home, a neighbour compose himself, trying not to cry. who worked in a childcare institution located a few miles from his home Rudi’s sisters confirm that they are in recruited Rudi. He was about ten school. The elder is in senior high school years old and taken to visit the modern and the younger one in Junior High school. buildings and see the children living there Sure it is tough, they explain. They don’t in comparatively better surroundings. The have enough books and materials to study schools to which these children were sent but they make do. Senior and junior high in nearby town were also better off. Rudi schools are the most expensive part of the was hooked. He begged his parents to let education system while elementary school, him go. His father wouldn’t agree at first which is what Rudy is attending, is meant but after a while he gave up: “I didn’t want to be free, although there are hidden costs. to let him go ... couldn’t sleep for days after Yet this family was still able to send their he left. I felt terrible. He would have no mum two elder daughters to school. “Yes”, the and dad in the institution ... only carers ... two father replies, almost indignantly, when days there ... he was crying, I was crying ... asked about that, “I am poor but I will do I asked him what he wanted ... he said he everything to secure my children’s education.”
a year for the main religious holiday, at most family and community. The use of physical twice, and mostly for children whose families and psychological punishment was found to lived nearby or could afford the transport be prevalent in most institutions. Both staff costs. The psychological and emotional and children appeared to accept this as part impact on children and the difficulty this of daily life in institutions and the reasons was likely to place on their return to their for children violating rules were rarely families and communities after graduation considered, including that children continued were issues raised by this research. to break rules despite the use of physical punishment. The daily operational needs of the institutions were usually prioritised over the Because ‘caring’ was generally viewed and children’s needs to form secure emotional understood by the institutions as a by- and social attachments, including ties to a product of children living in the institution
32 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) rather than the primary aim, the need for Despite Indonesian law clearly stating professional caregivers or sufficient numbers that children without parental care or not of staff able to provide care was not receiving appropriate care by their families are prioritized. Almost all of the institutions had the responsibility of the State, local authority a low ratio of staff per child with most having representatives, managers and organizations less than one staff member for ten children. running these institutions all seemed to view In addition, most staff occupied a range of providing these services as an act of charity positions at the same time and few were rather than a legal responsibility. Anyone actually assigned to caring for the children. was able to set up a childcare institution and In most institutions assessed there were there were no formal requirements such considerably fewer adults working full time as demonstrating needs for such services with the children than the staffing charts or or a capacity to run them, including skilled profiles indicated. human resources and adequate facilities. The only legal documentation required was The picture that emerged was of children an administrative formality and not all the caring for themselves while adults cared institutions surveyed had complied with it. primarily for the institution. Only 4% of the Social organizations are required to register staff working in the institutions surveyed with the Ministry of Social Affairs in order had a background in social work or social to receive government funding but this also welfare and only 3% of all staff had received entailed no assessment of capacity to provide any training in caring for children. While services or for minimum standards to be met. the situation was somewhat better in the government institutions, staff were still The research confirmed that no regulatory mostly ‘managing’ the children, in particular system was in place at national or local ensuring compliance with rules and applying level, and none of the provincial or district sanctions for violations. authorities had developed a registration system. Yet all of the institutions assessed In almost all the institutions assessed children received considerable government funding, were obligated to carry out a range of chores, and for most this represented the greater many of which went beyond learning ‘life part of their budgets, particularly the BBM skills’ as often suggested, but were crucial to subsidy. Government institutions were the running of the institutions. Children were generally found to have much larger budgets observed not just providing support to adult than private ones. The three largest budgets staff but actually carrying out work instead of (2006) were government run, with annual them. Many institutions would not function budgets of between USD 103,000 to USD without them, as there were insufficient 170,000. Almost half of the institutions support staff to clean, cook and wash. The assessed (17) on the other hand, had an research also found that in a number of annual budget of less than USD 10,000. This institutions surveyed, children undertook difference in budgets contributed to the very work which contributed to the economy different facilities provided by the institutions. of the institution. This included, in some instances, children carrying out work defined The KEMENSOS model childcare institution under the law as harmful and exploitative, in Pati, Central Java, was found to provide including construction work and the making more professional services, both in the of bricks. The research report concluded facilities available and the way services were that finding such practices in a majority of delivered. This included the number and institutions raised the question of whether qualifications of its staff and its multi-service institutions had the requisite resources and approach that entailed providing direct skills to care for children. support to over 20 children who remained within their families. In some aspects, though,
Changing the Paradigm 33 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) this institution proved remarkably similar to institution to support children who could not the others assessed for the research. Access be taken in because ‘quotas’ had been filled. to education for children from poor families The budget allocated to supporting children was still the primary purpose of placements in their families was less than one percent of and of services provided to children. As with that spent on providing residential services other institutions, 90% of the children in the for children and it was limited to a short institution had one or both parents alive and period (usually one year) to cover school fees only 6% were real orphans. and some basic needs (food and clothing). In addition, this institution’s running costs were so Although it provided support to some children high that it was highly unlikely to be replicable who remained with their families, the aim of as a model even by local government, let alone that support was not to encourage family the private organizations running the majority reunification of children but to enable the of institutions in the country.
The story of Yasmin (17 years old) and her sister Suzi (15 years old)
Yasmin and Suzi have lived in the institution the island of Sumatra. They left Ternate run by the Ministry of Social Affairs in for Ambon, the capital of Maluku province. Central Java for over six years. They Upon reaching Ambon, however, their were placed there by their second ‘foster father decided to stay there. The rest of parents’. They are sisters from Ternate, in the family continued to travel by ship to North Maluku. Yasmin cannot remember Surabaya. Yasmin did not understand where her original Ternate name as they both left they were going. What she does remember when they were still very young. Yasmin clearly is her stepmother offering her and was in grade 3 of elementary school at the her sister for sale to a couple they had just time, while her sister was only three years met on the ship. – “Do you want these kids?” old. The sisters were taken by this couple Yasmin remembers that her parents (Yasmin’s first foster parents) to a house, departed for Aceh in 1998 to visit her older which Yasmin later found out was in Blora sister. They stayed there for at least a year. Regency (north Java). During that time, Yasmin lived with her aunt and was in grade 1 of elementary school. Three years of violence When their mother eventually returned Yasmin and Suzi were then thrust into a home from Aceh she fell seriously ill, and nightmare that Yasmin says she will never after a couple of days she passed away. forget. Not a day went by without hard Only seven days after the death of their work, verbal abuse or physical violence. mother their father remarried, this time to Both sisters were required to work, although a woman from Jambi with five children of Suzi doesn’t remember much about that time. her own. From the time they moved in with During the interview she mostly remained their stepmother, Yasmin and Suzi were silent, only nodding her head and making brief frequently subjected to physical violence. comments. Yasmin remembers she would be slapped if she failed to share her things or her food Her foster parents did not send Yasmin to with her stepmother’s children. school until after a year had passed. All her days were filled with work. Even after she Leaving Ternate started again at school, she had to do a lot of work: One day the siblings were informed that the family was going to move to Jambi, on • Fetching water four times a day from a
34 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) distance of more than 1km, carrying two them and when she found them watching big water bottles each time. TV she flew into a rage. All the way home, • Bringing grass to her foster parents’ the pair were continually slapped and hit. goats some 2km away. She had to do Upon arriving home they were tied to a this twice a day, at 10 a.m. upon coming pillar while their foster mother went to home from school and at 3 p.m. fetch her husband from the rice fields. • Fetching firewood each day from a The pair managed to free themselves and distance of 2km. She had to do this fled from the house. “I wanted to go to between her trips bringing grass to the the railway station, but I didn’t know the way goats. so we went back to the place where we had been watching TV,” recounted Yasmin. They Besides these duties, Yasmin also had to decided to go home, but were rejected perform a variety of domestic chores each and handed over to the village head. day, which included cleaning the house and washing the dishes. If Yasmin or Suzi The village head and his wife became their were late in performing any of their tasks second foster parents. This time both they would be hit with a length of wood. sisters were treated well. They were not Yasmin recalled how her body had been forced to work, and only had to perform covered with marks as a result of the light household chores, such as sweeping regular beatings she had received, but she up and washing the dishes. They were also was afraid to tell anyone for fear that the sent to school. abuse would only increase. Arriving at the institution Neither of them received adequate nourishment during that time. They ate Yasmin’s education had been severely only twice a day, afternoon and night, disrupted. After being off school for a with nothing more than a plate of rice year, she had continued her education but with a bit of tofu or tempeh (soya cake) failed to advance to the next grade and on the side. They frequently went hungry. had to repeat it, so after moving in with To overcome the hunger pangs, they ate her second foster parents she started roasted soybeans that they received school again in grade 1. Thus it took her from a neighbour or found on their trips three years to get out of grade 1. In 2002, gathering grass and firewood. They both shortly after she entered grade 3, her shared a small bed and had to bathe in the second foster parents brought Yasmin and river. her sister to the government childcare institution in Pati, West Java. At that time Yasmin’s education was also disrupted, as Suzi was starting grade 1 of elementary she was frequently absent from school as school. a result of the work she had to do. Yasmin also remembers being sad at the time “... “It’s really nice in (this institution). I’ve got because I would remember mum.” Suzi says lots of friends, there’s no one ordering you she cannot remember much, except that around,” says Yasmin. “It reduces the burden she had to get up at 5 a.m. every day. on parents. You get educated to a higher level, lots of friends,” says Suzi. Running Away However, they both admit that they only One Sunday, the two were ordered to began to feel comfortable in the institution fetch water. On the way they stopped after quite a few months. Suzi in particular off at someone’s house and watched TV. had felt unhappy, as she had to get up very Their foster mother came to look for early in the morning and often overslept.
Changing the Paradigm 35 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Life in the institution Meaning of Parental, Sibling and The routines of the siblings are the same as Peer Relationships for all other children – rise in the morning, Thinking about her birth parents and family prayers, sport, school, prayers, lunch, always makes Yasmin sad – “I’d love to meet afternoon activities, prayers, dinner, study, them...” To cope with her sadness she often and evening assembly. They also perform writes poems in which she expresses her “picket” duties, such as cleaning houses longing to meet with her father and other and the yard and helping with the cooking, members of her birth family. She always in the intervals between their scheduled throws away her writing afterward, as she activities. explains; At present Yasmin is in grade 3 of junior high “whenever I cheer up, I always throw the school, while Suzi is in grade 6 of elementary poems away because if I were to reread them, school. The fact that their education has they would only make me sad again.” Suzi been disrupted means that they are both wasn’t able to say much, except that she behind at school for their age. They are was sad. Yet they are both aware that there also bigger physically, particularly Suzi, than are also good people, like the village head other children in their classes. Yasmin also and his wife who looked after them. As Suzi appears more ‘mature’ than the children in explains, “They were really nice ... normally we her class. Despite being somewhat shy in meet every three months. We go home during a group, Yasmin can be talkative. She is also the holidays. I miss them a lot...” very willing to work. Yasmin says that her little sister is her Record kept in the institution on best friend – “she’s independent and always Yasmin’s development: understands what I want.” For her part, Suzi talks about her sister as being independent, She is reported as being emotional, frequently self-reliant, and strong. Both Yasmin and Suzi shouting (N.B. not explained in what context), are friends with the girl who shares Yasmin’s rough and lacking in social sensitivity. room. Suzi also has other friends who live Yasmin says that she has been receiving in different cottages. Yasmin, though, says counselling and guidance from a social she does not feel close to other girls in the worker since she entered the institution, institution – “they don’t appeal to me ... they go and feels close to this social worker – “I overboard.” According to her, these girls are can talk to him whenever I want. If anything’s always talking about money or beautifying wrong, I can go directly to him.” Meanwhile themselves and she doesn’t like that – “they Suzi has been receiving counselling and always see things differently from the reality”. guidance from another social worker. The She is also upset by the fact that other sisters live in separate cottages. children have nicknamed her “horse”. Social worker’s record: Contains notes “They say I walk crazy and too fast, but I’m not on guidance given to Yasmin on nutrition, a horse, I’m a human being. So this upsets me her sleeping habits, and sport. The report and makes me really angry,” she says quietly. states that Yasmin’s emotional state is still She says she doesn’t vent her anger or fragile and that some of the other children show her sadness, but keeps it all bottled make her feel ill at ease. up inside. She also says that although she has good friends, not a day goes by when she doesn’t feel lonely.
36 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The research findings formed the basis and chairs of their parent organizations in for a wide range of recommendations. It a reflection about the services they were highlighted the fact that while the Child providing to children. It articulated an Protection Law stressed the importance of expectation that the quality of services family care, the policies, services, budgets, delivered to children would meet certain attitudes, competencies, mechanisms and standards. In effect, it reminded everyone infrastructures at all levels supported involved that children have rights that need institutionalization. It concluded that a major to be respected; that there are international shift in paradigm was needed, away from standards, national laws and regulations residential care and towards direct support applicable to the decisions, interventions and for children in their families and communities. services delivered to children and families; and that provision of these services entails The research called on the government legal responsibility and accountability. to develop a clear policy framework to strengthen family based care and prioritize A child rights approach and legal framework extended family care or alternative care was relatively new in Indonesia and while in a family environment for children who many people knew about the adoption of could not be cared for by their families. It the Child Protection Law, most systems recommended a review of educational and services continued to be based on a assistance for vulnerable families and it philanthropic or benevolent basis, with the highlighted the need for more preventive expectation that beneficiaries would simply services to support family preservation and be grateful for whatever could be provided. strengthening. It called for the establishment of a regulatory framework for children’s The implications of the Quality of Care placement in alternative care, including research were therefore both wide-ranging and gatekeeping mechanisms, national standards challenging. Despite decades of direct funding to for the provision of those services and an these institutions, the government had not set effective monitoring system to ensure these up an accountability system beyond occasional are implemented. It also recommended a financial audits. Most institutions had never been major review of funding to children’s services, audited and while most would have received with a progressive shift to support the visits by local social affairs representatives, provision of quality non-residential services these were invariably courtesy visits to donate to children and their families. material or ensure good relations. Entering an institution to assess the service they provided The Quality of Care process was almost as and ask questions of the children, staff, even important as, if not more than, the results of parents of the children, about their experiences, the research. It provided a first opportunity views and suggestions, created a very new and to engage the staff, managers, founders challenging dynamic for all involved.
Changing the Paradigm 37 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) B. Evidence based advocacy: using the Quality of Care research as a basis for initiating a change in paradigm (2007-2008)
Effective regulation, minimum standards, and oversight
Preventive and responsive services
An aware and supportive public
What was done and why
Although the response to the research was technical support, concrete guidelines, and active generally positive, the findings were disturbing participation by the government. They voiced and challenging for many. Enabling open and their frustrations but also their willingness to active discussions about its implications improve and, in many cases, to change. for all parties was critical to building the political will and the momentum for change. The approach taken While many of the stakeholders would be willing to admit that ‘some institutions’ In addition to the overall research report, might be providing sub-standard services, it “Someone that Matters”, the Quality of Care was something else to recognize that the research produced 37 individual reports, great majority of institutions were actually containing a comprehensive assessment of providing the ’wrong type‘ of services. For the situation in each of the institutions and many service providers, this sounded like a recommendations for change, aimed at the call for the eradication of institutions, which management and staff of the institutions but meant their work places (where they usually also the local government. It was decided to also lived), their main source of income and complete and publish each individual report security, and their well-established ways of despite the intensive work this required, as doing things for ’orphans’. the purpose of conducting this research was not just to advocate for and initiate change Besides, as the research had indicated, at the national level but for the children in institutions were operating in vast numbers these institutions. and in many places they were the only formal service providers for vulnerable children and Before the reports were finalised, it was families. The role of the community-based essential to present the findings and get and non-governmental agencies, including feedback from the government, particularly religious organizations, in ensuring the social KEMENSOS as the agency responsible for welfare of vulnerable members of society children’s services and a partner in the has always been critical in Indonesia. Many of research. The findings were presented in these service providers had taken up this role technical meetings held with the heads of in the absence of government run services all key departments and directorates in the and they perceived that, as they were doing Ministry, which provided a rare opportunity to the government’s business, it was only right discuss across departments the implications that they should get financial support from it. of the findings on the Ministry’s policies and practices, as well as on its resource allocation. One important finding from the research, Representatives from provincial offices of however, was that most managers and staff in Social Affairs where the research had been institutions were openly deploring the lack of undertaken and heads of the KEMENSOS run
38 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) national model institutions were also present the findings were presented and discussed to provide feedback and integrate this into at a national meeting of the heads of all its the final report. The findings were presented institutions. As a result, the National Forum by the research team including two of the also decided to work in partnership with Save research team leaders, Mr. Harry Hikmat the Children to establish a data collection who was then the deputy head for planning system and a proper monitoring and support at the Ministry and Ms. Kanya Eka Santi, the mechanism to improve the quality of services head of the clinical advanced program at the in their institutions (see Section IV.1 A). National School of Social Work. Building public awareness about the situation Following the finalization of the research, a of children in institutions across the country CD containing all the research reports, tools was also essential to initiating a shift of and methodology, as well as Powerpoint paradigm. A vast amount of philanthropic presentations of key findings, was produced funding is provided to these institutions every to be distributed widely to all social and year by individuals and social and religious academic organizations. An executive organizations wanting to contribute to the summary of the research with key findings well-being of vulnerable children. The widely and recommendations was also published held perception that these institutions are separately to share more widely with the helping children without parents and families public and media. The research findings is a major factor in the role these institutions were presented in a private meeting with have come to play. the Minister of Social Affairs, Mr. Bachtiar Chamsyah, who agreed to launch the report In order to bring the findings to a much at a major public event in Jakarta. broader audience, a short video was produced with interviews of key research Separate meetings were also conducted to team members and with leaders in the present the findings and receive feedback Ministry of Social Affairs. Striking findings from influential national organizations were highlighted with photos from the running significant numbers of institutions research. The team also began collaborating in the country, including Nahdlatul Ulama with a local photographer to organize (NU), the largest Islamic organization in the an exhibition of photos taken during the country and Muhammadiyah, the second research, providing a vivid portrayal of largest organization. The team attended the children’s daily lives in the institutions. On 4th first national general meeting of the managers June 2008 the research report, “Someone that of childcare institutions operating under Matters” was launched at a major event at the NU network, during which it presented the Grand Hyatt Hotel in Jakarta, organised the learning from the report and discussed in partnership with KEMENSOS and UNICEF. its implications for child protection and for The Minister for Social Affairs Mr. Chamsyah NU as an organization. NU supports a large opened the event, and this was followed by number of childcare institutions and Islamic a presentation of the video highlighting the boarding schools. key findings from the research. During the launch and in the video, the Director General Muhammadiyah has more than 300 childcare for Social Assistance and Rehabilitation, Mr. institutions in its network and it had established Makmur Sunusi, reiterated the Ministry’s a National Forum of Panti (FORPAMA- commitment to supporting children within Forum Panti Muhammadiyah). Its leaders and their families and in a family environment, staff were key partners and had recognised and that placing children in institutional care the importance of improving their services should always be a last resort and regulated. for children, including in institutions. The research had assessed services in a number A joint press conference by KEMENSOS, of institutions run by Muhammadiyah, and Save the Children and UNICEF was held,
Changing the Paradigm 39 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) followed by a panel discussion on the issues A meeting chaired by the provincial Office of raised by the research and questions and Social Affairs was organised, during which the answers from the audience. The launch event research findings about the six institutions triggered intense media interest. Articles and were discussed with the managers of the interviews on the implications of the research institutions, and with representatives from were published in mainstream national relevant government departments, local and international press and television. The authorities, and from community-based finding that the vast majority of children had organizations. This enabled a discussion of the parents and that poverty and the resulting findings of the research and its implications in lack of access to education, rather than terms of follow up by the agencies that have abandonment or neglect, had mostly led responsibility for the wellbeing of children in these families to place their children in alternative care. institutions resonated powerfully across the coverage. Key findings and learning In September 2008, the Minister for Social A particularly interesting learning from this Affairs Mr Bachtiar Chamsyah opened a process was the generally positive feedback major seminar and exhibition at the National from institutions and social agencies, despite Graduate School of Social Work (STKS) the findings often being critical or challenging. entitled ”Social Research for Policy Change”. Institutions mostly acknowledged both the Attended by over 400 people, the seminar accuracy of the findings and their own need brought together the main academic and for support and external evaluation. The technical bodies responsible for training research process and results enabled them future social policy thinkers and social work to examine the services they provided. The practitioners. The Minister also opened a fact that this was the first time that they major photo exhibition at STKS, which ran had received feedback and that the research for a week. He addressed the press and teams had gone back to them with the results media on this issue, resulting in coverage in had meant that this was felt to be a different both the national and local media. type of process which enabled them to look back at the services they provided and areas A comprehensive process of dissemination where they felt improvements needed to be of the research findings was also conducted made. It also proved to be a constructive in all six provinces where the research opportunity to consider the implications had taken place, from May to August 2008. Dissemination in the government model institution, Pati, was conducted in December 2008. The research teams went back to each institution where they had conducted the work. Separate meetings were held in these institutions with staff and management, and also with the children, to foster free discussion and feedback, as well as to enable consideration of what steps The Minister addressed the press and media after opening a major seminar and may be taken to follow up on photo exhibition at STKS bringing together photos from both the Quality of the recommendations. Care research and the Child led research.
40 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) of local government policies and practices had triggered awareness of areas that on the institutionalisation of children. In needed improvement on the part of these NTB for example, the head of the provincial institutions. This showed that while a process Office of Social Affairs recommended that, in of evaluation, monitoring and feedback can at line with the research’s recommendations, times be challenging, these institutions could no new childcare institutions be established also view it as an opportunity to improve. in the province until a thorough review of This ‘buy-in’ is crucial for the effectiveness needs be undertaken. In a few instances some of any regulatory system. This process also aspects of the situation in the institutions built on the ability of the research teams to had already improved since the research, present critical information in a constructive with indications that the process of research way.
Changing the Paradigm 41 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) C. Understanding children’s views and perspectives: the Child-led Research (2007-2008)
Children’s voices and participation
A skilled child protection workforce
Knowledge and data on child protection issues and good practices
What was done and why Although the Quality of Care research of them by the children and the people in had involved children throughout, the charge of their care was therefore essential. KEMENSOS team recognized that the terms Although children have limited opportunities of reference for the research, the questions to express their opinions or affect decision- and issues explored, were developed by making in Indonesia, children placed in adults. The team decided that it was crucial institutions are not always passive subjects to give children in institutions with an in their placement. Faced with the prospect opportunity to set their own agenda, while of no access to education, many children also recognizing that it would not be easy. will select going to institutions. In some The Quality of Care research had found that instances children were aware of their children were rarely given an opportunity to families’ struggles to make ends meet and felt make decisions, even about minor matters. that by going away they relieved their families Relationships were dominated by the of a burden. Escaping violence, neglect, authority of adults who saw enforcing rules discrimination and cruelty, often at the hands as their primary role. of a stepparent, was also a recurring reason Indonesian culture also places high importance for children to agree, or even ask, to be on children respecting adults and the Child placed in an institution. Children were also Protection Law reflects that. Asking questions an important target of institutions that sent or expressing opinions in front of adults can staff out in search of new recruits. Providing be considered inappropriate and involving an opportunity for children to voice their children in decision-making is often not own role in their placements, and what led considered. However the Child Protection to it, was critical to ensuring their views Law also stipulates that in the care and upkeep were reflected in policy discussions about of children deemed neglected or abandoned, children’s care. and therefore under its responsibility (wards The Quality of Care research had also of the State), the government must make highlighted child protection concerns efforts to ensure and support these children’s in the institutions surveyed, particularly participation, and that they can express their the common use of both physical and views, receive information, and even organise psychological punishments. Although the and associate. Child Protection Law expressly recognises While legally these provisions cover all children’s right to protection from abuse children without parental care, they are and inhuman punishment (Article 16), and it poorly known and rarely applied to children prohibits violence and abuse in educational in institutional care. Increasing awareness institutions (Article 54), corporal punishment
42 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) and humiliating or degrading treatments are Dayaks are traditionally animists but there generally not regarded as violence. Their use have been concerted efforts at conversion in both educational and care institutions is by the main religious groups. The Quality of common and often supported by parents Care research found that institutions were and members of the community. playing a significant role in this. It seemed not uncommon for a relative to place a child in In addition to the use of physical and one of the faith-based institutions to ensure humiliating punishment there were other their integration into that faith. In addition, protection concerns relating to the many Dayak children face serious challenges location and contexts of the institutions, in accessing education due to distance and particularly in the conflict-affected areas of poor infrastructure where they live. Going Indonesia. Maluku province was the scene home can mean more than two days of travel, of widespread sectarian conflicts in the often walking. Family relationships were late 1990s, leading to thousands of deaths found to be particularly difficult for children and massive displacement. All the children in the institutions as a result. in institutions there had been victims of the conflict. The Quality of Care research The approach taken found that in some institutions children were isolated from changes taking place The KEMENSOS team, in consultation with outside and were continuing to express other key members of the Quality of Care conflict-related fears or concerns. Creating research, decided that working in six childcare opportunities for these children and their institutions with a total of 60 child researchers institutions to address this was therefore across Maluku and West Kalimantan would considered a priority. enable the level of facilitation and support needed. The institutions were selected, The ethnic diversity of West Kalimantan and conditional on discussions and agreement a history of conflict in that province have also with the management and staff of the influenced the way childcare institutions have institutions and also the children. In addition developed and operated. West Kalimantan is to considerations already highlighted, the located on a large island which is ethnically three selected institutions per province were highly diverse, with indigenous Dayaks (over chosen to be representative of different 200 ethnic sub-groups), Malays and Chinese. institutional care models present in those West Kalimantan had also been one of the areas. main sites for the Indonesia government’s transmigration program between 1980 In Maluku, the three institutions included and 1985, resulting in a 400% increase in a Christian one that focused on conflict population in that time. In 1999, a bloody affected children based on strong Protestant conflict broke out in the Sambas region values (Caleb House); an Islamic one run bordering Malaysia, between the Madurese under a network (Hidayatullah) that follows ethnic group on one side and the Dayaks and particularly strict interpretations of Islam Malays on the other. It led to many deaths and and based in an Islamic Boarding school the displacement of over 12,000, including (Pesantren) located in a remote rural the forced expulsion of all ethnic Madurese area; and one that is also based on Islamic from Sambas. Although both ethnic Malay teachings but more flexible and community and Madurese share the same religion, Islam, based (Nurul Ikhlas). In West Kalimantan, their children could not be put together in an a girls-only Islamic institution that had a institution even though both had been victims stated focus on caring for children who had of the conflict. The childcare institutions run recently converted to Islam was selected by Islamic organizations became ethnically (Nur Ilahi). The children came from various segregated as a result. ethnic backgrounds.
Changing the Paradigm 43 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) the workshops with the children. Andy West, an international consultant with considerable experience in child participation and in facilitating child-led research, was invited to train and mentor the facilitation team for the first phase of this work. The researchers were to be between 11 and 18 years of age and there would be equal representation of girls and boys, with ten children to be selected from each institution. Child led research workshop in West Kalimantan The children in the institutions would select the researchers from among their peers on A large government run institution for the basis of candidates’ essays on why felt children from various ethnic and religious they were best suited for this opportunity. backgrounds (UPRS) was also selected. Located in a big, isolated compound some The facilitation team got initial agreement distance from the capital, it had a particularly from the managers of the institutions. A tight disciplinary regime. A Christian child-friendly leaflet was posted in the childcare institution in Sambas region (Eben institutions explaining the project, how Haezer), in a remote location on the border children could participate, and what it would with Malaysia, was also selected. Run under entail. It also clarified how the information strict religious principles, the children they shared would be used and what are all Dayaks, coming from families and confidentiality they could expect. It made communities generally located far in the it clear that participation was optional. The interior of Kalimantan. leaflet also provided names and contact details of relevant Save the Children staff, in A team of national and local facilitators case they wanted to provide any feedback were recruited to support the process. The or raise concerns. The facilitators’ team four national facilitators were experienced organised a meeting with all of the children members of the Quality of Care research in each institution to explain the project, team that had demonstrated the skills and what research is, and the proposed process; knowledge needed to undertake this work. to identify their interests and any concerns Through the previous research they had they may have had about participation; and built the experience and relationships with to agree on a way forward. the management, staff and children in these institutions which would enable them to It was clear from the start that this would continue with this more sensitive work. be much more difficult for the adults in the Kanya Eka Santi, who had led teams in the institutions than for the children. Quality Care research in four provinces, was selected as the team leader of the facilitators “It was apparent that many of the institution for this work. Local facilitators were heads wanted to intervene in this process. For selected from both provinces, and a team of example, some of them tried to influence the three local facilitators was initially selected choices made by the children, or complained for each province. to the team about the selection of particular children. However, the children appeared to A photographer and graphic artist was hired to be relishing their new roles.” (Santi, 2009). work with the children on documentation of their research and also to document the actual Questions of power imbalances and the process for the child-led research. He also importance of diversity were discussed contributed creative graphics and collages for with the children before the selection
44 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) process and children with a wide range of They began to identify issues they wanted ages were selected in these institutions. to know more about. They started to think A comprehensive training and planning about who they would like to ask questions, workshop was held with all the facilitators, what those questions might be and what led by the international consultant. Concepts challenges there may be in asking them. They of childhood and diversity were explored as learnt to use cameras; they organized dramas, well as research processes, and how children dances and songs; they developed games. of different ages and with diverse capacities The children set the agenda daily, with only would apply these. limited suggestions from the adult facilitators. Key decisions were left to them and this was In August 2007, thirty child researchers from clearly a new experience for them. the three childcare institutions in Maluku were brought together for the first one- Following the first workshop, the facilitators week workshop. For many of the children worked closely with the child researchers, this was the first time they were able to mix reviewing progress, identifying issues and with children from very different contexts, in facilitating problem solving sessions. A second particular different faiths, and yet who also one-week workshop three months later shared so many similar experiences. A key brought together all the child researchers. The part of this process was enabling them to children identified key issues, mapping patterns discuss these experiences and their lives, in in the answers and grouping them, doing analysis the institutions, at school, at home in their and drawing conclusions. They also discussed families or in their communities. what should be done with their findings, who
The covers from the Child-led Research reports in 6 childcare institutions in Maluku and West Kalimantan.
Changing the Paradigm 45 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) to share them with and how, what issues may and communities. They interviewed other arise in sharing more difficult findings and how children, staff, managers, teachers, school to address them, and who had the influence to peers and religious leaders. Lack of access act upon them. to their parents and families meant that interviewing them was not possible. Some A similar process began in West Kalimantan common issues identified across both with another group of 30 child researchers provinces are outlined below. in October 2007. This group of child researchers seemed to have higher abilities • The importance of education to children to express themselves, to formulate was a recurring theme. Children’s conflicted questions and identify issues they would like feelings about being in institutions was to explore. On the other hand, they were discussed in many of the reports, with less expressive and playful than the children accessing education and having a positive in Maluku. They were quieter and it took future being contrasted with missing their them longer to get to know one another, to families and having many obligations and share and to try things together. rules to follow. The children made several recommendations to donors, including Education was a much bigger concern for ensuring long term funding for their them and, although they wanted to participate education and access to additional training in the research, they were worried about the to develop particular livelihood skills. potential impact of their involvement on their grades and performance. This was reflected • Economic problems faced by children and in the discussions with the managers and the institutions. Some of the basic needs staff of the childcare institutions, who proved children felt were not sufficiently met in some cases reluctant to create the space included transport, clothes, shoes, books needed for the children to carry out their and pencils, fruit and rice, soap and personal research activities or to attend the meetings. hygiene products. They also expressed concerns about the economic situation of Six individual reports were produced and their institution and fears that it may have published in May 2008 with copies given to to close if it did not get enough funding. the children and institutions to share and conduct advocacy activities. Each reflected • Children’s activities were also key areas the very different personalities, talents, of research, including their participation perspectives and interests of the child in chores and also economic work in researchers in each institution. The quality some instances, and their participation in of the research and of the reports astonished religious activities. The reasons children many of their peers and the adults in their sometimes neglected their chores and the institutions, schools and local government. sanctions they received as a result were Although this was the end of the research also discussed in a number of reports. process, it was the beginning of a complex and sensitive process of advocacy. • Children’s relationships with adults in the institutions and at school were explored. Key findings and learning Issues with teachers, in particular the use of physical punishment, poor teaching methods The findings from the children’s research and lack of care and attention towards were varied but some recurring themes pupils, were raised, but also the support and and issues were identified and explored motivation that children could receive from in all six childcare institutions. Most child good teachers. The role of the head of the researchers had focused on the issues that institution and staff as ‘alternative parents’, affected children’s lives in their institutions, and the way children felt they were treated but also in the context of their schools or related to them was also discussed.
46 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) • Relationships with families were also time for the children to participate without explored in most of the research. The affecting or disturbing their schooling. children discussed what it felt like to miss Children in institutions are left with very their families and the strategies they used little ‘free’ time and anything they do with to cope. The challenges of going home for that time is closely supervised and deemed holidays were also a theme of the research. potentially disruptive by adults. The team The children’s sadness at not seeing their obtained consent from both the institutions families was a major area of concern for and the children’s schools throughout the them. research. At times children reported that participating in the research was a burden • Some of the research discussed children’s and some expressed concerns about falling emotional lives, with a number of reports behind at school. The team worked with the exploring both positive support provided children to find ways to lighten their load, by peers as well as conflicts. The impact but withdrawal was always an option left of rules that prohibit any type of romantic open to them. relationship within or outside the institution was also discussed in a couple of reports. Although all of the child researchers expressed pride in what they had accomplished and felt • The hopes and fears of children in the they had gained a lot through the process, institutions were an important focus of involving children in participatory processes has the research in both provinces, highlighting an impact on their relationships, particularly in concerns about what will happen when a context as hermetic as a childcare institution. they graduate from school and the impact Thinking of ways to reduce the potential if they did not to succeed. negative impact is an important learning for • Rules and discipline were also explored future work like this. in almost all the reports. In a couple The team put in place mechanisms to follow of reports specific punishments were up on the children in the aftermath of the discussed and recommendations made research. The team had also involved the to stop them. Some of the reports also local Save the Children program team in the explored with children why they broke the process and it soon became clear that they rules, how they felt about it when they did needed to take responsibility for ensuring and what types of sanctions were more that children were not negatively impacted likely to be followed by children. by their involvement in the research. The Some issues were specific to the particular KEMENSOS team assigned specific budgets context and situations faced in some of the to enable the team of national and local institutions. In other cases, children found to facilitators to respond to issues as they their surprise that what they had expected arose, which it did a number of times over a to be uncontroversial got the adults period of about two years after the research. most upset. Managing those responses and supporting children to make safe decisions was also an important part of the role of the facilitators. One of the harder parts of this process was to negotiate sufficient
Changing the Paradigm 47 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) D. Supporting children’s advocacy in institutional care using the child-led research (2008-2009)
Children’s voices and participation
An aware and supportive public
What was done and why The child researchers had identified in their decision-makers. The team worked closely research the agencies and people with whom with the Minister for Social Affairs and they wanted to share their findings and lobbied for an opportunity for the child address their recommendations. In addition researchers to present their findings to him. to the staff and management of their own The opportunity for the children to present institutions and the donors and chairs of the the reports to officials at the national level, parent organization, there were also their accompanied by the heads of their institutions, local government authorities, including the proved a positive incentive for the managers governor of their province and the social and who had been previously reluctant. education agencies. The dissemination of the Quality of Care research findings had been The approach taken postponed to the last in West Kalimantan and Maluku as it was important to provide In the middle of June 2008, the child the child researchers with the opportunity to researchers in West Kalimantan presented develop and present their own findings and their findings to their peers and to the recommendations without being influenced management and staff of their institutions. by them. Using Powerpoint presentations and leading discussions with the audience, they In May and June 2008 the teams of facilitators answered questions, debated findings and returned to West Kalimantan and Maluku recommendations, and found their research to discuss with the child researchers, the generally well received. Also in June, the 30 management of the institutions and the child researchers presented their findings authorities how to proceed. An intense and recommendations in a formal meeting period of discussions and negotiations with the new Governor of the Province. In followed with the management of these addition to the child researchers and the institutions on conducting dissemination of heads of their institutions, the heads of local the research with other stakeholders. The agencies also attended, including social affairs, heads of two institutions initially did not agree health and education. to the children presenting their findings to the local authorities, feeling that some of the The dissemination of the Child-led Research conclusions in the research would not reflect in Maluku was conducted in early August. On th th positively on them. Agreement was reached the 6 and 7 of August 2008 an exhibition of in August and the reports presented to the photographs and a dissemination meeting was provincial level authorities and to the public held in Ambon, where the child researchers with a major photo exhibition. were able to present the findings of their research to the key stakeholders they had The children’s research in both Maluku and addressed their recommendations to, West Kalimantan had also directed some including a representative of the Governor, of their recommendations to national level his Assistant at the provincial level on Social
48 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) the child researchers could attend the event, the next day a workshop was held to enable the children to share their experiences, their thinking and the challenges they faced in their lives and during the research process. The children also reflected with the facilitators and the KEMENSOS adviser team on the research process, providing feedback on their experiences and recommendations for future work. Child researcher presenting findings in Maluku The situation of children in institutions was also at the forefront of an event organised Issues, the Head of the Social Affairs Office by the Dutch Embassy in Jakarta and its and representatives from the Health and cultural centre, Erasmus Huis, to celebrate Education Offices as well as staff from the International Human Right Day on Dec 10, Community Welfare Unit of the Municipality 2008. The event was focused on children’s of Ambon. rights and included a panel discussion on a The researchers also presented the results of range of topics relating to children’s rights their work to the public in a major exhibition in Indonesia. Save the Children was invited of photos that was held during the two days. to present and brought two of the child The photos taken by the children illustrated researchers, Ana (15) from Maluku and both the findings from the three research Hari Wibowo (17) from West Kalimantan, reports and the process of research they to present their research and findings. In had followed. Over 300 people visited the addition, one of the Quality of Care team exhibition, including children and teachers leaders, Kanya Eka Santi, presented the key from local schools and local media. findings from the work done with children in alternative care and the implications for child A major seminar in Bandung (West Java) in rights in Indonesia. A photo exhibition from September 2008 to present the results of the research was held at the cultural centre both the Quality of Care research and the and the child researchers were interviewed Child-led research to key policy makers by the national media about their research and social work professionals provided the and experiences. opportunity for the child researchers to present their findings and recommendations to the Minister of Social Affairs. There was Key findings and learning a private presentation by 13 of the child The advocacy work conducted by the child researchers to the Minister and other senior researchers following the completion of the officials, including two Director-Generals research provided the first ever opportunity from the Ministry of Social Affairs. These for children living in institutional care to children presented the key findings from the share their experiences, concerns and hopes six research reports and held a dialogue with about the future with people outside of the Minister on their recommendations and their institutions and their peers at school. concerns. This dialogue was a major step Children in institutions are often asked to forward for a Ministry that had not always speak to people in their communities or been open to children’s participation. in the government, but it is usually in the This seminar was also the first occasion for context of speaking to donors, fundraising the child researchers from Maluku and West or advocating on behalf of the institution, or Kalimantan to meet. Although only 13 of religious activities that emphasize the role they are meant to play as “orphans” or as
Changing the Paradigm 49 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) children of the “panti/institution”. It is rarely at times a lightning rod for these managers’ about what they think as individuals or as a frustrations. In some cases, however, the group, what they value or what they would team was able to use the child-led process to like to change. Recognising the importance of support both the managers and the children children’s participation in understanding the to resolve some of these tensions. challenges they and their families face, still has a long way to go in Indonesia, especially for Managing children’s expectations was another children whose lives are ruled by institutions important challenge. Many of the children and the adults who run them. expected that their advocacy work would be followed by action and when that did not Running a child-led process in that context occur, it led them to question the power of was fraught with difficulties and entailed a advocacy. Getting the balance right between change of power dynamics that was clearly encouraging children to make arguments for threatening to the adults in a number of the change they desired and providing them institutions, and the managers that objected with realistic assessments of the potential most to children’s participation and advocacy success of their efforts was not easy and not were also those that faced the biggest always done effectively. challenges in running their institution. In those cases, the adults complained of a ‘change One of the recurring questions child researchers in culture’ taking place as a result of the had about doing this work was whether it research, particularly when it came to sharing would be useful to them personally but also the children’s findings with the outside world. more broadly in terms of their world and The culture that was being changed primarily reality. In the end, most of the children thought was the institutional culture, and the roles, the work was worthwhile, as expressed in their expectations and relationships that went with reflections: that. There were also palpable examples of “At first, I thought that this activity would not changes in children’s thinking and behaviours bring results. I, myself, rarely speak in class. But as a result of the process, not just in terms since following this activity, I can speak in front of a growing confidence or ability to express of the class, I know how to interview and I can views and ask questions, but also through the research. In addition I got to know some friends, exposure to the realities and experiences of their feelings and lives in other institutions. other children. What’s certain is that I am really happy that this It was the institutions with the most regulated activity from Save the Children took place.” and closed systems that had the hardest time “I am really happy because I have been able to enforcing their rules and values with the share what I have experienced in the institution children. For teenagers in particular, this could and we were able to put forward our feelings to mean a regulated life of religious rituals and the Government about what we experience.” obligations inside the institution and another life of drinking, smoking and hanging out with “In my view, this activity was really good and it undesirable peers whenever they were able can make us more independent and have more to leave the institutional compound. Having experience and knowledge. At the end, this the children participate in child-led research research wasn’t for nothing as we could be heard and the advocacy process afterwards became by the Governor, the department of social affairs and the health department.”
50 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Gideon (15 years old Dayak boy), Child Researcher from West Kalimantan shares his story “My name is Gideon. I’m from a remote area of the other children had bicycles, but I didn’t called Nyanyat. My family is very poor and has and our house was very far away from the nothing. My father is a small farmer. We have school. It was probably a kilometre or more. only a little bit of land and what it produces is But I said to myself, “Better to go to school on not enough to feed us all year. Sometimes it is foot than not go at all.” I put my head down only enough to feed us for four or five months. and did everything I was supposed to. There are eight in our family, including mum and dad. Mum only goes out to the fields Even though I was really worried about how I to help dad when she really has to as she had done, I got into grade II with a ranking. I already has six of us children to look after as told my parents the good news and they were well as the house. As they are so busy trying really proud to see that I had been awarded to survive, our mum and dad don’t have much a ranking. They are now aware about how time to think about us children. As a result important school is as it gives us hope for the we were often neglected. Luckily four of my future. siblings had a great desire to go to school and At that time, we had a really special visitor learn. They were determined to keep studying – my uncle, who had just come from district even though they also had to work. capital. He came to our house to invite me to Our two oldest sisters graduated from high come to live with him so as to ease the burden school. They both then applied for a job in the on my parents, so I went with my uncle to live same company and were accepted, although in his house. I was enrolled in a new school. they work in different places. My eldest sister The atmosphere there was very different from works in the office, while the second works on what I had been used to before. Luckily, my the ground as a supervisor. Their wages are uncle’s house was very close to my new school, just enough to pay for my two other sisters so it only took me a couple of minutes to walk who are still at school. there. So, the ones left behind were myself and my I lived in my uncle’s house for three years and youngest sibling, the youngest in the family. I was then placed in Eben Haezer, which is an was six at the time, and really wanted to go institution that cares for children of my age. to school. After seeing all the other children The reason I was placed there was to teach going to school, I asked my parents if I could me to become independent and self-reliant no go too. At first my mum said ‘no’ but relented matter where I found myself. I have had lots after a while. of experiences here and am now in grade II of junior high school. Eben Haezer guarantees When I started at school, I had nothing to us an education and we don’t have to worry wear except the hand-me-down uniform of about cost or money. We are taught lots of my older sister and I also had to use her books things, including religion, morals, politeness and those of my other older sister because my and our traditions. Since I’ve been here, I’ve parents only had enough money to pay the also had a few personal problems. But with enrolment fee. I was also really worried about the help of God, everything can be overcome. how I was going to go to school every day. All Amen.”
Changing the Paradigm 51 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) E. Learning from formal responses for children in need of special protection: The RPSA research (2009-2010)
Knowledge and data on child protection issues and good practices
Preventive and responsive services
A skilled child protection workforce
What was done and why The initial research and analysis of services including street children (Ruman Singgah), for vulnerable children carried out by children in contact with the law, disabled Save the Children’s team of advisers in children, girls involved in prostitution or KEMENSOS and its partners had focused on commercial sexual exploitation, children and the Panti Asuhan Sosial Anak, the institutions adults with where the vast majority of children were placed and receiving services. They were substance abuse issues, and others. The also where most of the funding went, from the only non-residential model promoted by government as well as private donors. Across the Ministry was a day care centre for pre- Indonesia, these institutions were the dominant school children of particularly poor and and often only service provided for vulnerable disadvantaged families. There are just a children. handful of these institutions across the country, and the government runs most of The research had highlighted, however, that them. The exception to this are institutions childcare institutions by and large did not for the disabled that are also run by private target or accept children who had major organizations and somewhat more numerous. alternative care needs or were facing serious child protection issues. Even though some In 2002 the Child Protection Law was adopted of these children did end up there, these to integrate some of the key principles of the institutions were not set up to provide specific UN Convention on the Rights of the Child. services for them and would generally exclude This law articulated for the first time that them unless they happened to fit the main children had the right to be protected from criteria used by these institutions for placing a range of harmful acts at the hands of their children: poverty, a need to access education parents, guardians or anyone responsible for and a capacity to function appropriately, in their care, including “discrimination, exploitation particular performing at school. Although of an economic or sexual nature, neglect, harsh there were a few institutions that focused less treatment, violence and abuse, injustice and other 15 on access to education and more on care or forms of mistreatment.” Where previously protection needs, they were the exception to the State had seen its role primarily in terms the rule. of caring for children deemed ‘without a family’, either as a result of parental death, The Ministry of Social Affairs, however, abandonment or poverty, the law now stated promoted a range of institutions to respond that it was responsible for ensuring the to different categories of children it protection of all children, including within considered vulnerable, families or any other care settings.
15 Law No 23 (2002) on Child Protection, Article 13.
52 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The law also introduced the concept of (Keppres No. 87/2002) and on the Elimination “special protection” (perlindungan khusus) of Trafficking for Women and Children - “the obligation and responsibility of the (Keppres No. 88/2002).17 These National Government and other State institutions to Plans called for an inter-departmental provide special protection”- including certain coordination team to be set up at all levels responses and remedies to children in of government. While it was meant to be particular circumstances.16 The question a coordinating effort, it became clear to the of what infrastructures, resources and various Ministries that some operational mandates were needed on the ground to mechanisms were needed to provide services ensure children in need of special protection for women and children victims of violence. would access effective services was, however, left unanswered. The law itself did As a result, a joint Ministerial Decision (SKB) not establish any system or mechanism to was adopted between the Minister of Social support implementation. It did not assign Affairs, the Minister of Health, the Minister new responsibilities for child protection of Women’s Empowerment and the Head of Police on Integrated Services for Women or clarify existing ones, and the only body 18 it created, the National Child Protection and Children Victim of Violence. Commission (KPAI), has primarily an advocacy This document established for the first time and awareness-raising role. the respective roles and responsibilities of each Responsibility for child protection remained agency, and what services they must provide fragmented and divided between ministries or ensure the availability of at the local level. and agencies. The Ministry of Social KEMENSOS was entrusted with a number Affairs is responsible for social services of tasks, including ensuring the availability of and interventions for children and their the human resources needed, in particular families, including children in need of special social workers trained and experienced in protection. The Ministry of Women’s assistance to victims of violence. It was also Empowerment and Child Protection is tasked with establishing Protection Homes responsible for overall policy coordination and Trauma Centres (Rumah Perlindungan for child protection, in addition to its mandate dan Pusat Trauma) for victims of violence. on women. The Ministry of Justice, the The Ministry of Women’s Empowerment, the police, and the Ministries of Labour, Health Ministry of Health and the Head of Police and Education each have their own mandates also concluded a joint agreement (SKB) that touch on child protection without for the Establishment of Crisis Centres in having clear roles assigned in relation to the Government Hospitals at national and local implementation of the Child Protection Law levels, in particular Police Hospitals. The or in relation to each other. centres provide integrated services for The same year two National Plans of women and children who are referred or Action (RAN) to address child trafficking seek services in the hospitals as a result of were developed, on the Elimination of violence (PPT). The Police Department also Commercial Sexual Exploitation for Children developed Special Assistance offices Ruang(
16 Law No 23 (2002) on Child Protection, Article 59, identifies 17eleven circumstances where children are entitled to such protection from the State: children in emergency situations; children18 in contact with the law; children from minority and isolated groups; children being exploited economically or sexually; children who are trafficked; children who become victims of substance abuse including narcotics, alcohol, psychotropic substances and other addictive substances; children who are victims of kidnapping, sale and trading; children who are victims of both physical and/or mental violence; disabled children; children who are the victims of abuse; neglected children. 17 Irwanto et al (2007), Analysis of the Concept of Child Protection and its Implementation in Indonesia: A Preliminary Study. Save the Children UK. p.17. 18 SKB: Menteri Sosial RI No 75/HUK/2002; Menteri Kesehatan Nomor 1329/Menkes/SKB/X/2002; Menteri Negara Pemberdayaan Perempuan RI No. 14/MenegPP/Dep.V/X/2002; Kepala Kepolisian Negara RI No. B/3048/X/2002.
Changing the Paradigm 53 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Pelayanan Khusus -RPK) in police stations at the Provincial and Regency levels, managed under the Women’s Police Units (Polisi Wanita), to provide services to women and children victims of crimes, including trafficking. Other initiatives included the establishment of shelters and safe houses. In 2004 the Ministry of Social Affairs established the first of 15 Special Protection Homes for Children (RPSA-Rumah Perlindungan Sosial Anak), residential facilities located mostly in provincial capitals. These institutions were meant to act both as emergency shelters for child victims of violence and exploitation, and longer term ‘treatment’ facilities for children needing more intensive interventions by specialists such as psychologists and social workers, or lawyers, before they are returned home.
The model comprised two main elements: 1) A Temporary Shelter that acts as the first The RPSAs are meant to take a professional line of response for children whose safety, social work approach, using bio-psycho-social health and well-being are immediately at assessment to determine the issues faced by risk. The child is expected to remain the child and the risks and protective factors there no longer than 30 days while an in their environment and networks. A case initial assessment is made. During this management approach is used, together with period, the issue would be addressed, counselling and therapy when necessary.19 a referral made to other appropriate services, or the child would be admitted The first RPSA was established in East to the second unit of the RPSA. Jakarta (RPSA Bambu Apus) under the direct responsibility of the Ministry’s Directorate 2) A Protection Home that uses a case for Children’s Services. It was located within management approach to respond to cases a new multiservice complex of residential that need more intensive interventions by services for children, run by KEMENSOS on professionals including psychologists or the outskirts of the capital city. The idea was social workers, or legal assistance. This is to bring together services for vulnerable also where the trauma centre is located children and persons under one roof to and therapy provided by a psychiatrist and maximize technical resources. It was to a psychologist. A child is meant to receive be a national model that would respond to services from the Protection Home for no particularly acute or high profile cases. The longer than six months. After this, the child concept for the RPSA was developed by will be either returned to his/her parents the Children’s Directorate in consultation or guardian, be placed for adoption or in an with a number of child protection activists alternative family, or be referred to other and experts from non-governmental service providers. organizations in the country.
19 Ministry of Social Affairs (2007). Implementation Manual for the RPSA, Special Protection Home for Children. Directorate for Children’s Services, KEMENSOS, R.I.
54 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Understanding the extent to which RPSAs the model RPSA, Bambu Apus in Jakarta, to were fulfilling their mandate was therefore contribute to a review meeting organised by critical because this was the way forward for the Directorate of Children’s Services in Bali formal child protection services in Indonesia. on 5-8 May 2009. By 2009 there were already ten RPSAs At the meeting, the team presented some established with another five planned. of the initial findings and participated in the Although all of these institutions were discussions with the Ministry and staff of government run, KEMENSOS had already the RPSA about the lessons learnt. Having begun discussions with some local private identified a number of challenges in the childcare institutions to encourage them to responses provided to children through the set up RPSAs. To support a review of the RPSA model, Save the Children agreed to model and ensure that lessons learnt were conduct more comprehensive assessments, gathered before further replication, Save adding another four RPSAs to the research. the Children initiated a rapid assessment of
The story of Andi (13 years old boy)
Andi was born in Lampung, Sumatera, but he He thought this was a good idea because he speaks with a strong Javanese accent because was fed up with being hit by his stepmother his parents are transmigrants from Java. He is and he expected that his brother would treat the youngest of 6 children, with 3 siblings in him better. In reality, once he got to Batam, Lampung, 2 working in Brunei Darussalam and his brother hit him, often for no reason at all. 1 in Batam. Even though Andi worked in the tomato fields to help him, without even having to be asked, Andi was forced to grow up quickly as his he kept getting hit all the times, one time with mother died when he was very small and his a big metal stick. His brother also did not fulfil father remarried shortly after. He was often his promise to put him through school. During mistreated by his stepmother, who frequently this period Andi continued to be in touch with got angry with him and hit him. As he was his sister who works in Brunei, and she often the youngest, it was mainly him who got hit sent him some pocket money. all the times. His sister in Lampung often tried to defend him but this resulted in her arguing About a year and a half after he arrived in a lot with her stepmother. Andi explained Batam, Andi decided to run away because he that relations between his sisters and their couldn’t take being hit any longer. With the stepmother were not good either. One day money he had received from his sister, 500,000 his step mother got very mad at his sister for rupiah (50 USD), he went to the airport to asking for money to pay for her school fees and try to get back to Lampung. At the airport, a she just threw the 50,000 rupiah (USD 5) note security guard stopped him and asked him at her step daughter’s face. where he was going. The guard told him that he couldn’t go anywhere without an adult, as Andi often had problems with his health, which he needed an identity card to fly. Finally the he thinks has to do with his kidneys. He finds guard brought him to the police. There he met it really painful to sit at times and also to pee. a Mrs. Sri, a policewoman who dealt with cases As a result he often played truant at school relating to children. As a result, Andi explains, in Lampung. Nevertheless, he says that he still he ended up in the local newspapers. He was managed to study on his own and as a result he even interviewed on TV. His brother who used was able to pass the elementary school exam. to beat him was arrested and when they met, During the Ramadan in 2007, Andi was invited he kept crying and begging Andi to tell them to stay with his brother who lives in Batam. to let him go. Andi thought ‘let him go to jail!’
Changing the Paradigm 55 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) but after a while he felt bad that he should be started to accept his situation. Initially he really responsible for one of his own family going to wanted to go home to Lampung so that he jail. could get on with his study but he now accepts that he has to stay in the institution until he After this, Andi was brought to the police recovers. His aunt from Cibinong has been hospital to be examined and receive treatment calling regularly since he has been there and and the government even paid for him to go she is proposing for him to go to stay with her to Jakarta for more treatment. He went there but the staff at the institution say it is better accompanied by Mrs. Sri and was taken to the for him to stay there for now so that he can RPSA. Mrs. Sri had told him that he would be get medical treatment and an education. But taken to his family in Tanjung Priok (an area of while his health has got better recently, he still northern Jakarta) later that day. She promised has not been sent to school. to come and get him in the evening to take him there but, when the time came, she phoned and Andi wants to go back to school to continue his said she could not come because it was raining. education. He wants to start junior high school so he can become someone educated. Two of the The following day she did not come either and staffs at the RPSA have said that they want to it was the same again the next day. Andi cried help him get an education and pay for his fees. until his eyes were all swollen up, he kept asking He would like to go to the local high school, as to be sent home and he would not eat. During proposed by one of the staff. He is not so keen on that time he refused to enter the institution and going to the Islamic boarding school proposed by insisted on waiting by the gate for Mrs. Sri. On the other. He is concerned that discipline at that the third day, though, he had to eat and Mrs. Sri institution would be too strict. He is also worried telephoned. She said that he had to be patient that his sister or his aunt won’t be able to visit him and that she would come to fetch him once his because the school is too far for them. Ideally he treatment was over. She told him that he should would like to go and live with his aunt in Cibinong, eat. Andi tried a number of times to run away if she would agree to put him to school. Or he and to get into the office to call Mrs. Sri. would be really happy if he could join his sister in In the RPSA, he befriended a 19-year-old girl Brunei where she works as a domestic servant. who was also staying there. She told him to be He could help her. Speaking to the staff, though, patient. The staff also tried to get him to talk it seems that plans for Andi to study are not really and share his feelings and problems. Slowly he concrete yet.
The approach taken
A team of experienced social workers from The five institutions assessed were as follows: the National School of Social Work and from the Directorate of Children’s Services was 1) RPSA Bambu Apus, in East Jakarta, Java, established to conduct the assessments. As established in 2004. a government model, it was critical that this 2) RPSA Jambi, in the municipality of Jambi in learning be supported by people who would Central Sumatra, established in 2007. be involved in further developments of the 3) RPSA Purwokerto in Batturaden, Central model, or likely to provide technical advice Java, established in January 2007. to RPSAs in the future. Many team members 4) RPSA Bima Sakti, in Batu, East Java, had been involved in the Quality of Care established in 2007. research and some in Child-led Research. 5) RPSA Naibonat, in East Kupang, in Nusa Kanya Eka Santi at the time head of the Tenggara Timur (NTT) that had begun clinical social work program at the National operation in October 2009. School, led the fieldwork.
56 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Two of the RPSAs (Bambu Apus in Jakarta and research findings were checked through and RPSA Jambi in Central Sumatra) were triangulation. The case studies provided run directly by the Ministry of Social Affairs, powerful illustrations of the complexity as national ‘model’ institutions under of the child protection issues faced by the its Technical Assistance Units program children and also the types of responses and (Unit Pelayanan Teknis- UPT), part of the interventions they were getting from the Ministry’s efforts to develop and test model RPSA. interventions to be replicated by local governments and private service providers. As a majority of the RPSAs were located Local government had established the other within another type of residential institution, three RPSAs with support from KEMENSOS. or in a compound housing a range of other residential facilities, a review of the situation The aim of the research project was to and services provided by these institutions provide a profile of the RPSAs, of the was also needed in some cases. The findings children receiving services through them, of from the assessments were consolidated the range and quality of services provided and presented to the institutions and to the and their appropriateness in relation to the Ministry of Social Affairs in 2010. In 2011 an needs of these children. This was to include a overall report bringing together the learning review of the availability and capacity of staff, with recommendations for the RPSA model, relevance of competencies, mandate and as well as child protection more broadly, was resources to respond to the issues faced, as published. well as collaboration and referral processes used by the RPSA. It would provide an Key findings and learning overall picture of the work being carried out and the extent to which they appeared to The research highlighted the diversity and serve the needs of their target population. complexity of child protection issues that these institutions were expected to respond Recognising the diversity of situations to. The RPSAs provided services for babies between the RPSAs selected, however, abandoned in hospitals, teenagers pregnant the aim was not to compare them or the as a result of sexual violence or commercial quality of their services. Instead, it sought to sexual exploitation and their babies, female draw some overall conclusions and lessons victims of sexual abuse, victims of trafficking, learnt from the RPSA model, together with of intra-familial physical violence and recommendations to support policy and neglect, children with disability or severe practice in that context. communication impairments found on the The fieldwork for this research took place streets, children in conflict with the law, child from April to October 2009 and analysis victims of incest, and children who ran away of data and report writing was finalised from home and were living on the street. in January 2010. The methodology used All five institutions recognized that their was qualitative, using a multiple case study target populations were children in need of approach and purposive sampling. Interviews special protection as defined under the Child were conducted with the management, staff Protection Law, but there was little clarity and clients of the RPSAs, as well as other key about which children would most benefit stakeholders such as staff from local social from its services and how interventions authorities and teachers. A team of two could be adapted to serve the different needs to three professional social workers was of these children. Once referred, few cases assigned to each institution and conducted were deemed not to meet the selection fieldwork over a period of five days. Field criteria unless the child had a condition that observations and review of documentation management of the RPSA felt was beyond its including case records was also conducted
Changing the Paradigm 57 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) capacity to deal with, such as mental illness or Many cases involved children from areas a disability. As a result the RPSAs were found considerable distance from these institutions. to provide services to particular groups of Without a network of social agencies across children based on which organization or the province able to share information, authority referred cases to it. carry out family visits and assessments, map resources and identify possible solutions The research also found very different levels in the particular locality, staff were often of capacity between the different RPSAs, left to find the information by themselves. partly due to the fact that some had operated Limitations on staff and resources such as for much longer than others. Mostly, however, transport and communications meant that it was due to accessing very different levels such assessments were very limited. Instead, of resources, whether skilled professionals the RPSAs tended to rely on the referral or logistical and financial support. Although agency’s initial assessment of the issues to all RPSAs had significant numbers of staff determine whether or not to admit the child on paper, in reality most of these held two and what services to provide. positions, working both in the RPSA and the other institution under which the RPSA is This inability to assess the situation and housed. intervene in the child’s community of origin, including the home environment, was Similarly, although all RPSAs had qualified particularly problematic for most children social workers on staff, the social workers referred to the RPSA as a result of intra- were rarely in positions that entailed working familial violence or neglect, and in cases with children. Instead many, if not most, were of exploitation or trafficking involving the in management and administrative positions. child’s family. With little capacity to assess The situation was somewhat better in RPSA both short and long term safety issues, the Bambu Apus, as could be expected of a national RPSA was left to find solutions which either model, with social workers assigned to case entailed the child being ‘accepted back’ in management positions. Yet the research the family through family mediation, or being found that these were generally young and placed in an institution longer term. The inexperienced social work graduates, with no RPSAs had virtually no capacity to follow up supervision or support in responding to cases. after the child was returned to the family, Only one experienced social worker was leaving that child potentially in a highly handling cases and the RPSA depended heavily precarious position. on her at the time. The RPSAs also had very limited access to logistical and operational The line between the shelter and protection support and relied heavily on the resources of home became blurred as a result, and the the other institutions, having to ‘borrow’ staff, RPSAs seemed to provide very similar transportation or rooms, severely reducing its services in all cases. As the Manual on the capacity to respond quickly and appropriately RPSA highlights, one of the main functions to situations faced by children. of the RPSA is to support the child’s return to normal social functioning by providing Most of the RPSAs divided their services, at interventions that can address the traumatic least on paper, according to the Temporary experience as well as enabling the child’s Shelter and Protection Home model, but the return to his or her family or the provision difference inpractice seemed to be mostly of an alternative care environment.20 The the length of time the children stayed in the focus of RPSA interventions tended to be RPSA rather than the nature of services on seeking change in the child rather than provided. addressing the situation that caused the harm
20 Kemensos (2007) Manual RPSA p.18.
58 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) to the child. In practice, this meant that the is an appropriate and important temporary RPSA saw their role primarily as providing measure, alternatives were rarely considered. a place for the child to stay while some Children were even removed when the risk solution could be ‘figured out’ and the child was no longer present or when other family was deemed ‘ready’ to be sent home or, in members were willing and able to care for many cases, referred to another longer term the child. The children were also rarely told institution, usually for educational purposes. where they were going or what services they could expect to get in the RPSA. They Even in cases where there were no were almost never involved in the decision to immediate safety issues or where alternative receive services, even when they were able to placement in the child’s family was available, understand and participate. In a few, but very the child’s placement in the RPSA in order disturbing cases, the research even found that to receive services was still considered children had apparently been misled about essential. RPSAs also did not seem to have where they were being taken to or for what considered the possibility of providing purpose (See the Story of Andi). services to a child within his or her family or community, or distance may have deterred Instead of working actively with key individuals them from doing so. When a child could to bring about a change within the child’s not be accommodated the RPSAs generally protective environment, the services in the did not admit the child to their services. RPSA were aimed at achieving a change in the child, often translating this as a change in In some cases children who had been behaviour. This resulted in situations where victims of violence, including sexual violence children were seen as the problem rather in their families, were ‘pulled out’ of these than the victim. In some cases interventions families in ways that seemed to punish were aimed at ‘convincing the child’ to forgive rather than protect them (see the story of or understand the perpetrator, or to behave Ida). Although safety concerns were real in differently in order to ‘avoid’ a repetition of some cases, and removing the child at times the violence (see the story of Ida).
The story of Ida (10 year old girl)
Ida is a 10-year-old girl who hardly ever me to go home… I didn’t want to but she sits still. She was born in Temanggung, a made me, so I went home. In the house there rural area three to four hours’ drive from were some people, I didn’t know them, she Baturraden. Before entering the RPSA she persuaded me to go with them to Baturraden. was attending elementary school (Grade I didn’t want to; I wanted to stay at home with 3). Ida’s father had died about five years my mama. My mama persuaded me. I cried, earlier and her mother remarried to a but she continued to try to convince me, so widower who had three children of his yeah, I was brought here with her.” own. As a result of this marriage they According to Ida, two social workers from had two more children, so there are now the local Office of Social Affairs (Dinsos) six children in this family. Her mother is and a reporter came to pick her up. “I 35 years old and works long hours in a thought I was going to be on TV”. After factory. Her stepfather is 50 and works in handing her to the RPSA they all left, construction. Their income is very modest including her mother. Ida did not want to and as a result they have entrusted the care be left there. “I was left here on my own by of their last child to a neighbour. my mother. I didn’t want to. I cried, I shouted, “One day”, Ida explains, “I was playing with I slammed and kicked the door when they put a friend and my mother called me and told me in the room and locked me in. I screamed
Changing the Paradigm 59 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) and screamed. I didn’t want to be left behind by her stepfather. “I was also slapped when by my mother, but my mother went home. he found out I had been playing. I wasn’t That time I just screamed and cried and was allowed to play. When he found out he would locked into my room.” rip apart and burn my school books, tear my clothes. Father is bad, I was never given food The Social Affairs officers who brought Ida to go to school.” to the RPSA had an introduction letter from the head of social services at the regency While Ida speaks of physical violence at the level. In it, he handed Ida over to the care of hands of her stepfather she does not talk the RPSA to get guidance and rehabilitation. about the other forms of violence she has There was also a letter on behalf of Ida’s experienced. She has difficulty focusing on parents signed by her mother, staff from the anything, is constantly seeking attention Office of Social Affairs and a witness. It stated and restless. The staff at the RPSA call that they agreed to Ida receiving services at her “naughty” and a little “wild”, although the RPSA. In addition, there was a letter they also point out that in the two weeks signed by Ida that stated she was willing to since she has been in the institution her follow all of the programs at the RPSA and ‘tantrums’ have reduced and she gets would abide by the rules of the institution angry less frequently. Staff see this as a or be ready to face sanctions. sign of progress. They point to her using less “dirty” or rude words. As one staff The case record states that Ida’s stepfather member explains, “She is already better. had sexually abused her since 2008. The Before when she started to talk she wouldn’t abuse started with sexual penetration using stop and her attitude was always to go against his finger. It states that Ida tried to scream everything. but that her stepfather put his hand on her mouth to shut her up. He threatened When she was told off she didn’t care…She to kill her if she said anything. After this did not follow what was asked of her…. Now, the stepfather raped her with his penis she has started, she is willing to listen a little repeatedly. The record states that this more, even though it still seems hard, but she took place when Ida’s mother was working has started to tone it down before she gets late and the other members of the family angry.” were watching TV at the neighbours’ house, but that it also happened during daytime. At the RPSA, counselling is carried out Finally Ida’s mother found out and reported by any of the staff and it takes the form the case to the local police. Charges were of inviting Ida to talk. No individual brought against the stepfather and the case staff member has been assigned for this was being processed at the time. purpose. Ida is quite bored and frequently asks to go home. All there is to do is Ida explains why she was placed in the watch TV, pray, do some crafts and speak RPSA, “They say Mama can’t do it, she has to to the adults. There is no provision for take care of too many children. Mama’s good, continuing her education at the institution it’s my stepfather who is bad. Sometimes in and the only other child there is much the house there was hitting, here (showing her older than her and pregnant. She misses thigh), using a stick. Mama was attacked using her mother and her friends; she wants to plates, she was hit with a bucket until it broke, be back at school. Ida pleads repeatedly mama often cried.” to go home and asks the research team to tell the staff of the RPSA. She even wrote Ida explained that it wasn’t just her a couple of letters to the staff asking to be mother who was the victim of violence sent home.
60 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) “Miss, please, tell (the staff) I want to go anymore”. As a result Ida feels that she is home…. I miss my mum, my dad, my little in the institution because she is naughty brother, I want to go to school…I want to play and too hard to please. “I was put in here with my friends…” by my mother so that I stop complaining about everything…” “I am too difficult, miss, so now I The staff usually answer her that she will must stop being fussy… so that I can go home be able to go home, “later, when you are faster… I want to go home, miss, please tell a clever girl, when you are good, not naughty (the head of the institution).”
RPSA staff recognised that a key function that could work with them over a period of of their services related to what the time. The lack of professional psychological RPSA Manual describes as “rehabilitation support for children receiving services in the services”.21 This comprised psycho-social RPSAs was all the more worrying as some of support and counselling from a team of the responses and interventions used were, social workers and a psychologist, as well in some cases, clearly inappropriate. Children as the provision of “therapy to recover tended to receive the same collective services, from trauma”. All of the RPSAs had either regardless of their needs and situations. Apart a psychologist on staff or worked together from covering basic physical needs through with the relevant departments in the local shelter, food and supervision, services provided hospital. The psychologist, however, was not included mostly ‘guidance’ by staff. always qualified to practice. A lack of staff specialised in handing child The role of the psychologist also seemed to be protection cases was also reflected in the limited to an initial psychological assessment fact that none of the RPSAs had policies or of the child rather than the provision of procedures for working with children who counselling or therapy. There seemed to be had experienced violence, or for preventing little relationship between the psychological and responding to issues that could arise assessment and the development and while working with them. Lack of procedures implementation of a service plan. on child protection meant that there was no mechanism in place to prevent, report If available, counselling was left to the care and and respond should such an incident occur, support staff and it mostly involved encouraging whether by a staff member or between children to talk, without providing either a children. regular opportunity or an identified individual
The story of Intan (7 year old girl)
Intan reported one day to her mother that her vagina was the result of penetration she was feeling sick and that blood was with a blunt object. coming out in the toilet. Eventually she also The RPSA team conducted observation in told her that their 60-year-old neighbour the field before receiving a formal referral had sexually assaulted her. The suspect had from a local child protection network after called her and attracted her with sweets hearing about the case. Intan, however, and once there, he had assaulted her, was not placed in the RPSA as the team felt inserting his finger into her vagina. Medical that her parents were still able to care for her. examination confirmed that a wound in
21 Kemensos (2007) Manual of RPSA, p. 24
Changing the Paradigm 61 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The following services and support were At the time of the assessment, the provided by the RPSA: accused had been sentenced to two years imprisonment but was about to be freed 1) Food assistance to the family every six as a result of his sentence being reduced months; due to pre-trial detention time. The staff 2) Accompaniment for Intan during at the RPSA did not conduct any type of questioning by the police and during psychological assessment of the needs of court hearings; Intan, including assisting her to address 3) Invited Intan and her family to an any potential trauma from her experience. amusement park (this was deemed by Apart from not having a clear concept of the RPSA staff to be a form of psycho- what counselling may entail, staff at the social counselling); RPSA were also finding it hard to make 4) Conducted home visits to bring adequate time to provide assistance to a ‘motivation’ to Intan as part of psycho- child whose location was quite far from social counselling at least once a month. the RPSA.
Staff were often left in the difficult position exploitation to return to a normal and of determining a point when reintegration fulfilling life in their families and communities. or placement out of the institution could be carried out. Many had difficulty in determining The overall report brought together when a child had been successfully ‘treated’ the findings from the RPSA research in or whether it was safe and desirable for each institution. It found that many of services to be terminated. Not surprisingly, the challenges and concerns identified children also seemed unclear about how in the research stemmed from a major long they were expected to be in the RPSA. conceptual problem with the model itself, “I was told I can go home when I have become and the residential approach it had taken to good, and I am not naughty anymore”, one child delivering services for children. It called for explained.22 a serious rethink of the role and functions of these institutions, and of the services The child’s return would be negotiated and approaches needed, both within and through a written agreement, despite limited outside these institutions. Although the capacity for an assessment of safety or staff at the RPSAs were committed and follow up on the part of the RPSA. When willing, the confused mandates and the lack the familial situation was deemed too of community services to support children’s complex or could not be assessed properly, longer-term protection meant that the staff tended to choose a ‘safer option’ by impact of their work was often very limited. extending the services within the RPSA or transferring the child to another institution. The research suggested that RPSAs could Children thus often ended up staying in the play an important role as specialized RPSA longer than the six month maximum temporary shelters, but that the ‘Protection set by the Manual. In cases where this was Home’ approach was misguided and even not possible, the RPSAs tended to refer potentially harmful for some children. them to a longer-term residential facility Serious violence against children could or Islamic Boarding school. This approach not be addressed by providing counselling defeated the very objective of supporting to that child in an institutional context for children affected by violence, neglect and six months or more. Instead, children’s placement in residential care needed to
22 Report of RPSA Purwokerto p.55.
62 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) be limited to those facing immediate safety It also highlighted the implication of this issues and where no safe alternative could be shift of paradigm on the skills and mandates provided. Longer-term solutions, including of the personnel working with children psychological support and trauma recovery, facing protection risks. Although the RPSA needed to be provided in the children’s Manual sets out a professional social work immediate environment and communities, approach, the lack of a system of professional not within an institution. social work that ensures capacity, skills and accountability was a serious hurdle. Ongoing The capacity of an institution to reach out reforms of the social work education system to families and communities and prevent as and the profession were identified as being well as respond to issues was limited to the critical to the development of the workforce immediate area surrounding it. Even with the needed to deliver appropriate and effective best of resources, including staff, transport services for children and their families. and budget, the distance would preclude regular home visits and follow-up with Although many of the staff in the RPSAs families and communities, let alone having the and the Ministry recognized the challenges local knowledge and relationships needed for identified in the research, steering the model successful social interventions. One of the away from residential based interventions obvious limitations of a protection system so has proven more difficult. Partly this is due focused on residential services was a lack of to the fact that so much has already been services available outside of the institutions. invested in this model and that it provides KEMENSOS with an intervention it can The report noted that a considerable policy promote with local government. More shift had taken place in the Ministry of Social significantly, however, the challenge lies in Affairs to redirect services from residential the lack of an alternative non-residential to child and family centred community based model of interventions. Having a system in services. It recommended that the RPSA place, even a flawed one, is crucial. Shifting model be reconsidered within that context the approach of the RPSAs and transforming before further replication of it. It called on them into temporary shelters for children the Ministry to work with other national needing immediate safety and support must agencies to develop a comprehensive national go hand in hand with the development of child protection system in partnership with effective non-residential interventions that local government that is responsible for can provide appropriate responses and the delivery of social services to children. support to children facing protection risks in It provided a number of recommendations their families and communities. about the establishment of an effective child protection system as well as ways to redirect and strengthen the services provided by RPSAs.
Changing the Paradigm 63 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) IV. Initiating a paradigm shift: Moving away from institutionalization and towards supporting family based care
While conducting research on the situation in providing the environment where children of children affected by the earthquake and can learn and test inter-personal relationships, tsunami in Aceh, Save the Children’s team of boundaries, and self-efficacy. Nowhere did it advisers in KEMENSOS was also reviewing recognize that families do notjust ‘provide’ national policies and laws relating to children’s for children but establish crucial lifelong protection and care. Although the 2002 Child bonds, relationships and dependencies. Protection Law and the Government policy on separated and unaccompanied children The guidelines also did not seek to further adopted in the aftermath of the emergency define who ‘neglected children’ were in Aceh had emphasized the primary role of and what their needs might be. The term parents and families in children’s care and encompassed any child whose parents protection, the policies and guidelines in could not ”guarantee their growth or place continued to focus almost exclusively development”, for whatever reason. There on residential based interventions. was no attempt at differentiating children who may genuinely have alternative care The three main operational guidelines needs, short or long term, children whose developed by KEMENSOS after the adoption families were struggling because of chronic of the Child Protection Law actually poverty, children who were being abused by broadened the role of residential based their families, or abandoned children. Instead, services for children, rather than propose the introduction to the Guidelines referred alternative family-based interventions. The to socio-economic challenges and clearly 2002 General Guidelines for the Operation abdicated the role of families in that context: of Childcare Institutions and the 2004 DEPSOS Guidelines for the Provision of Child Care in “Given these sort of social situations, it is no Institutions emphasized that the role of these longer feasible to rely on families to deal with institutions was to provide “the services that the problems of neglected children. Instead, would otherwise be provided by the child’s institutions are required that are capable of parents”.23 They defined the ‘services’ or substituting for children s parents. This is why role that parents would be expected to fulfil childcare institutions have been developed as institutions that are capable of providing entirely in terms of the provision of basic 24 necessities, and only referred to ”facilitating professional services to children.” socialization of a recreational or educational This was particularly concerning as it was nature”, as well as providing spiritual guidance. a major step back from the obligations The importance of attachment and developing articulated under the Child Welfare Law secure and significant relationships with a (Law No 4, 1979) that required the State to caregiver were not mentioned anywhere; provide support to families facing challenges nor was the critical role families play in in caring for their children. The law stated supporting the development of the child’s that children who were ”disadvantaged” had individual and cultural identity, or the right to access “assistance in order to
24 23 General Guidelines for the Operation of Childcare Institutions as Part of the Provision of Services to Neglected Children. (2002) DEPSOS, Directorate General of Social and Rehabilitation Services, Directorate of Children’s Social Services; General Guidelines for the Provision of Social Services to Children in Childcare Institutions (2004) DEPSOS, Directorate General of Social and Rehabilitation Services, Directorate of Children’s Social Services; Guidelines for the Provision of Social Services to Neglected Children outside of institutions, (2004) DEPSOS, Directorate General of Social and Rehabilitation Services. 24 General Guidelines for the Provision of Social Services to Children in Childcare Institutions (2004) DEPSOS. Chapter I, A.
64 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) ensure that they are able to grow and develop Although a letter of authorization to operate reasonably in their family environment.”25 is required from the social authorities (Surat Instead, the 2004 guidelines encouraged Izin Kegiatan- SIK), these letters are an institutions to expand their services and administrative formality and do not relate involve members of the community in to any capacity to deliver services, nor are supporting their work with children, rather they linked to a monitoring system. It is also than vice versa. Institutions were to serve not the institution that is registered but its as referral systems for other institutions parent organization. If a faith-based group and be the primary place for the collection runs a number of institutions or other social of data and information on children facing services, it will only require one such letter. welfare issues. The guidelines said nothing Many institutions do not have them and their about alternative care and very little about primary purpose is accessing government the issues families were facing and what funds, not ensuring the quality of services. institutions should do about it. The absence of a regulatory system, together Guidelines were also adopted by KEMENSOS with considerable funding being provided to for the Provision of Services to Neglected the institutions by the Ministry and local Children Outside of Institutional Care (2004). government, created a perfect environment The Guidelines suggested that institutions for institutional growth on a massive scale. had a role in establishing a “system of welfare KEMENSOS ‘knew’ that there were 4,305 service provision through an outreach childcare institutions in Indonesia in 2007 approach” to provide “protection, counselling because it was providing the BBM subsidy and guidance for children”, but did not really to these institutions. It had the name of articulate how these institutions were to the institution, the name of its manager and do this or what role families had to play in its address in a database developed for the this. Critically, it did not change or redirect distribution of these funds. funding policies that continued to require institutions to have children residing inside That data was gathered at ‘socializing’ the institution in order to access government meetings held annually at the provincial level assistance. where institutions were invited to sign up and state how many children they had in their The lack of a functioning regulatory system care. As in most cases the BBM subsidy could for the delivery of social services for at risk not cover all children or even all institutions children, whether residential or otherwise, in a given province, that number was then was equally concerning. In 2004 KEMENSOS adjusted to reflect the numbers that could had developed technical guidelines for the receive a percentage of the BBM subsidy. For Standardization of Social Welfare institutions example, if the stated number of children in and developed a process for their accreditation. one institution was 100, generally 60 children The standards were very generic, however, would receive the daily BBM subsidy cover and related primarily to their organizational food costs, and the number 60 would be structures and legal documentation. They also entered in the database. did not entail any sanctions for an institution failing to abide by them. There were no checks as to whether the institutions or the children were actually The accreditation system is voluntary there, except for random audits that reached and institutions can operate without no more than a hundred institutions per accreditation. The legal documentation year. Their focus was entirely on checking required is also a simple administrative step. the management of the funds, not whether
25 Law No 4 of 1979 on Children’s Welfare, Articles 4, 5 and 9.
Changing the Paradigm 65 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) children had actually been provided the food. level on residential care services and so BBM subsidy funds were disbursed directly deeply entrenched into policies, services, to the institutions by the Ministry. As a result budgets and practice would require more of this system, there was no accurate data than the adoption of a new policy or a even about institutions in the Ministry of Social a new law. Affairs. As the scale of the problem became clear, The data collected through the BBM subsidy the team reviewed Indonesia’s commitment was the only source of information about to international human rights standards. institutions and about the situation of After the fall of the New Order regime in children living in them. The BBM subsidy to 1998, human rights were high on the agenda childcare institutions in 2007 amounted to in Indonesia and a number of international almost USD 12 million. In comparison, the human rights conventions were ratified.27 total budget for the Directorate of Children Key pieces of legislation and policies of Services in 2006 was USD 19 million. Out relevance to children’s protection were of this, a further USD 9 million went to adopted. Following the adoption of the Child local government authorities to support the Protection Law in 2002, several other pieces delivery of services for neglected children of legislation strengthened the legal and under the decentralised funding system policy framework to protect children. (Deconcentration funds-Dekon).26 Much of that funding also went to institutions through In 2004, the UN Committee on the Rights local authorities. of the Child, the expert body that reviews the implementation of the UN Convention The lack of accurate data made it difficult to on the Rights of the Child by States that have assess the extent to which the number of ratified it, had examined Indonesia’s second institutions was growing, although the BBM report and made recommendations to the subsidy pointed to considerable increases government. In particular, it had expressed in numbers accessing it since it started concern at the high number of children in 2003. Data provided by the Ministry of placed in institutional care and had made Social Affairs to the UN Committee on four recommendations on the situation of the Rights of the Child in its first report children deprived of their family environment: in 2003, however, showed that the number of childcare institutions in Indonesia had (a) undertake a comprehensive study to doubled in less than ten years (1990-1998) assess the situation of children placed and on the basis of the BBM subsidy data in institutions, including their living this would mean that, at the very least, it conditions and services provided; had more than doubled again between 1998 (b) develop programs and policies to prevent and 2007. Residential care services for the placement of children in institutions, children were clearly expanding and action inter alia, by providing support and was needed to understand why and reverse guidance to the most vulnerable families that trend. On the other hand, transforming and by running awareness raising a child protection system so reliant at every campaigns;
27 26 The BBM subsidy was allocated under a different budget line 28in KEMENSOS. 27 Indonesia ratified the Convention on the Elimination of All Forms of Discrimination Against Women in 1984, the Convention on the Rights of the Child in 1990, the Convention Against Torture in 1998, and the International Convention on the Elimination of All Forms of Racial Discrimination in 1999. In 2006, it ratified the International Covenant on Civil and Political Rights and the International Covenant on Economic, Social and Cultural Rights and in 2011 the Convention on the Rights of Persons with Disabilities. 28 CRC/C/15/Add.223 (26 February 2004). Consideration of reports submitted by State Parties under Article 44 of the Convention: Concluding Observations Indonesia.
66 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) (c) take all necessary measures to allow with KEMENSOS and UNICEF. It was now children placed in institutions to return essential to move towards the development to their families whenever possible and of policies that would prevent children’s consider the placement of children in unnecessary institutionalization, prioritize institutions as a measure of last resort; family based care and family based alternative (d) set clear standards for existing care placements for children without parental institutions and ensure periodic review care, and establish a regulatory system, of the placement of children, in light of including standards of care for childcare article 25 of the Convention. 28 institutions. Over a year after they were issued, however, these recommendations had not been translated or shared with key decision- makers. Together with the Ministry of Women’s Empowerment responsible for coordinating policy on child protection, Save the Children had the Concluding Observations translated into Indonesian and began the process of dissemination, starting with the Ministry of Social Affairs. Following discussions with the Director for Children’s Services, Save the Children’s adviser team in the Ministry decided to support the government to implement these recommendations. It had already started on the comprehensive study of the situation of children in institutional care in partnership
28
Changing the Paradigm 67 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) A. The establishment of a regulatory system for children’s placement in alternative care
1. The national database system for children in alternative care and registration of childcare institutions (2007-2011)
Knowledge and data on child protection issues and good practices
Meaningful coordination across government and between sectors at different levels
Effective regulation, minimum standards, and oversight
Adequate funding
What was done and why
Without basic data about childcare institutions, Deconcentration funds to district authorities, ensuring children’s placements are based the Ministry still faced difficulty in accessing on their best interest and that they receive information about how they were spent. appropriate services is impossible. The government could not support or ensure The approach taken the rights of children without parental care if it did not know where they were, who In 2007 the team began working with they were and what care challenges these the Directorate of Children’s Services to children and their families were facing. It also develop a series of questionnaires to be sent could not ensure that the funding it provided to provincial and district level authorities was used and allocated in a way that was to collect data on childcare institutions, and consistent with these obligations and the on the children within them. The forms, policies it had adopted to implement them. together with an additional questionnaire to be used by local authorities to request It was therefore essential to begin establishing direct information from the institutions, a regulatory system that would require were sent by the Ministry in January 2007 to providers of residential care in Indonesia to all 33 provinces of Indonesia, and follow up be properly registered and that would work requests were sent in April 2007. with them to ensure the quality of services provided. The scale of the numbers meant During that year, data was received for about that a new national data collection system, half of all Indonesia’s provinces, some in that could be implemented at provincial and electronic format, most in reams of papers district levels, had to be established. and questionnaires. This process highlighted not only the difficulty of the Ministry getting a This also required a new approach to data response from local authorities, but also that collection in the Ministry of Social Affairs, one most of them had very limited data collection that would ensure availability of information systems in place. Although the central to enable proper monitoring of both children government, in particular its Statistical Agency and service providers. It would also test the (BPS), had invested in a major information and relationship between KEMENSOS and local technology development program to support authorities. Despite providing considerable
68 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) the establishment of electronic data collection systems at local government levels, there were huge differences in capacity and operational implementation around the country. During that year the team worked with a consultant, Hamid Patilima, to develop a pilot Database for Children without Parental Care for the Directorate of Children Services. The new system would both store data and support the Directorate and the local authorities to collect and analyse the data to ensure that policy decisions were based on more enter information needed for care planning and accurate knowledge of the situations of case management. It could also be used to children in institutions. manage and extract other data needed by local authorities to monitor services and The database was developed to gather analyse changes in beneficiaries. A system information on all children in alternative care, to ensure confidentiality was set up and, not just institutional care, but would start by for this reason as well as considerations of focusing on the latter. It was clear that most capacity, a flash disk or CD storage system local and national social authorities collected was decided upon. little data on children in other forms of alternative care. Research in institutions By June 2008 the database for Children being conducted by the team at the time without Parental Care was finalised. Training was showing that most of them kept very was conducted for three officers of the limited data about the children they provided Directorate of Children Services assigned services to. At best handwritten registries, to operate it. A computer containing the sometimes with photographs, were kept in database was located in the Directorate, and the institutions, with the name of the child, data gathered through the questionnaires sex, date of birth, religion, address and name sent to the provincial and district level of parents or guardians, date of placement authorities was entered. and generic reason given for placement One key element of the database was the (poor or orphan). Only a handful, mostly development of a proper registration system government, institutions kept any files or for childcare institutions nationwide, enabling records beyond a letter of agreement signed them to be easily identified and registered. by the parent or caregiver handing over the The registration numbers provided a unique child to the institution, and another contract ID for each institution, facilitating not only letter signed by the child agreeing to abide by its identification but also the determination the rules and regulations of the institution. of its location, as it made use of the official The database format was developed to numbering system used for each province enable institutions to gather comprehensive and district in Indonesia. data in the long term. Using simple software, In August 2008, the Director General it could be used by institutions to collect and for Social Services and Rehabilitation
Changing the Paradigm 69 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) issued a national directive requiring the network and supported them in conducting heads of district social authorities to issue training with other members to ensure all a registration number to all childcare institutions in those areas had been trained institutions under their jurisdiction. This and were entering data. Follow up visits were created a national registration system for made by the trainers team to check on the institutions, made more effective by linking progress of the data collection. Data entry the registration numbers to the Ministry’s and training on use of the national database assistance program for the institutions, the continued during 2010-2011 and extended BBM subsidy. Only institutions that were to other districts in Jakarta, West Java and registered and had entered their data in the Banten provinces. It was also integrated into database would be eligible to receive the other work conducted by Save the Children subsidy in the future. to disseminate and pilot newly drafted National Standards of Care (see Section Piloting the use of the database with a IV.1B). number of provincial and district authorities was conducted between 2008 and 2009 in In 2009, the Ministry of Social Affairs began partnership with KEMENSOS. The idea was to hire new social work graduates (Sakti to test and learn from implementation on Peksos) to support the implementation the ground but also to support the initial of its programs, particularly its new Cash data collection process. Indonesia has 33 Assistance to Vulnerable Children (PKSA) provinces divided into 497 districts/regencies (see Section IV.2 A). Save the Children and and municipalities, which are further divided its database team provided training to more into almost 7,000 sub-districts. Many than a hundred of these social workers in districts have more than a hundred childcare order to support effective data collection. institutions, some provinces over a thousand. Working with these institutions to collect Working in partnership with faith-based even basic data was a major undertaking. organizations throughout the research and Once basic data is collected and entered, the development of the regulatory system updating it is much simpler as the population was an essential part of the approach. During of these institutions is remarkably static, as the same period it was piloting the National many children stay for the duration of their Database with KEMENSOS, Save the Children education, usually twelve years. also worked to pilot the database nationally in partnership with Muhammadiyah. The From 2008 and 2009 piloting took place in second largest Islamic network in Indonesia, seven provinces, (Aceh, West Kalimantan, it is a major provider of social services for Jambi, Central Java, South Kalimantan, Riau vulnerable children and families and has the and West Java) and in an additional two highest number of childcare institutions in provinces in 2009 in partnership with one network. UNICEF (Maluku and NTT). This included intensive training in the use of the database After discussions with the organization’s and data entry for staff from the provincial leadership and its coordinating body for and district social affairs offices and staff from childcare institutions (FORPAMA), Save the selected institutions. The training included Children conducted a training of trainers supporting these institutions to collect and to 30 of its staff and volunteers from eight enter their data and the compilation of that provinces. The trainers travelled to the data at the local authority level. provinces, where they worked with the organization’s branches at provincial and In districts where local networks of district levels, providing training in the use institutions existed, as in Bandung, West Java, of the database and data collection to all the database team conducted Training of institutions under the network. Trainers (TOT) to selected members of the
70 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Key findings and learning Between 2008 and 2011 data on 3,899 Directorate that establishing this data system childcare institutions from all 33 provinces was critical, getting staffing, budgets and was entered in the national database, the commitment needed to carry out such including information on almost 125,000 a massive data collection process proved children. Although much of the information challenging to the end. Nonetheless, many entered continued to be quite basic, the local authorities and childcare institutions National Database and the work conducted have recognized the importance of gathering to support data collection by the institutions and updating their data regularly. and the local authorities represented an In 2011, KEMENSOS began to use the essential first step for the establishment of a data in the National Database as the basis regulatory system. for providing subsidies to institutions. Developing and piloting the National Following advocacy by Save the Children, Database revealed the challenges in and as a direct result of the Quality of Care collecting data on such a large scale, and also process, it reviewed its policies to prioritize in establishing a culture and practice of data funding to institutions that are registered collection and accountability. The Ministry in the database and providing support to of Social Affairs’ approach to data collection children not only on a residential basis but was focused on information it needed to also within their families. The new policy disburse its funding through its various requires institutions in receipt of its financial programs, yet provided few mechanisms assistance to disburse at least 40% of it to to ensure the accuracy of that data or the children living with their families, and that effectiveness of its targeting. Outside of quota will be increased incrementally to 60% the Ministry’s data collection centre, no and so on. The aim is to ensure financial staff were assigned in the Directorate for assistance from KEMENSOS facilitates the Children Services and no strategy adopted shift from residential to non-residential to ensure it had the information required services. to understand and respond to the needs of The work conducted with Muhammadiyah vulnerable populations. to support data collection and entry also The Save the Children team in KEMENSOS proved an important basis for redirecting had not decided lightly on developing and their policies and services. By the end of piloting a database. In Aceh the Family Tracing 2008, data on 253 childcare institutions under and Reunification Database had played a the Muhammadiyah network, almost 10,000 critical role during the emergency response children and 1,500 staff, had been entered in bringing together a myriad of humanitarian in the national database. Another 150 actors under a common data and reporting Muhammadiyah institutions in 17 provinces system but it had proven extremely difficult were surveyed indirectly by questionnaire as to integrate this database effectively into part of this process. One of the important government structures and systems in the findings from this pilot was that it uncovered post emergency period. However, without a a much larger number of Muhammadiyah clear basis and system for collecting accurate institutions than the organization itself had data there could be no accountability or been aware of. The piloting identified 403 regulatory system, and there could be no way institutions operating under the network, 73 of ensuring the Ministry’s financial assistance more than identified by the organization’s was distributed in line with its policies. coordination body. The data confirmed findings from the Quality of Care research Although there was commitment and that only a small number of orphans were understanding by the leadership of the being cared for in these institutions (6%).
Changing the Paradigm 71 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The lessons learnt from the pilot and Muhammadiyah leadership stressed the the findings from the data collection need for the organization to provide were presented at a major seminar in non-residential services for children in Muhammadiyah’s office on st 31 December the community rather than residential 2008, led by the Chairman of the National care. This work provided support for the Board of Muhammadiyah and the Chairwoman organization’s National Forum of Childcare of Aisyiyah’s Social Welfare Council (the Institutions, FORPAMA, to review its women’s branch of Muhammadiyah). The policies and standards.
72 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) 2. Developing National Standards of Care for Child Welfare Institutions (2008-2011)
Effective regulation, minimum standards, and oversight
Child Protection laws and policies, compliant with the CRC and other international standards and good practice
Meaningful coordination across government and between sectors at different levels
Children’s voices and participation
What was done and why
The Quality of Care research and the only on improving conditions and services advocacy work that followed in 2008 had inside the institutions would potentially highlighted serious issues about the role lead to more children going in rather than played by institutions and the quality of the less. Faced with poverty and a dire lack of services they provided. A broad consensus social assistance and services directed at was reached among key policy makers in them, many vulnerable families and children KEMENSOS, child protection practitioners would still see going into institutional care as and major providers of such services that the only way to secure a better future. The a paradigm shift was needed. Bearing in standards therefore had to start addressing mind the dominance of residential based the lack of support to these families, instead approaches in the provision of social services of just strengthening professional practice in to vulnerable children and families, this shift residential care. would only take place with a clear legal and policy framework backed by funding and The approach taken human resources. In May 2008, the Save the Children team in A regulatory framework was needed, as KEMENSOS facilitated the establishment of were policies and laws to prevent harmful a Task Group to develop National Standards family separation in the first place, and to of Care for childcare institutions. The Task provide alternative care options in a family Group included key members of the Quality environment for children in need of alternative of Care research team; senior officials from care. Both would need to be developed at the Ministry of Social Affairs including Senior the same time, as addressing the immediate Advisers to the Minister and officials from needs of hundreds of thousands of children its Legal Bureau; senior officials from the spending their childhoods in care could Ministry of Women’s Empowerment; the not wait. National standards for childcare Secretary of Muhammadiyah’s National institutions were also needed to support Forum of Childcare Institutions (FORPAMA), changes in both practice and directions. and the head of its social welfare directorate The challenge, however, was to develop who was also a member of the National standards that would not only address the Commission on Child Protection (KPAI); way services were delivered to these children and senior lecturers from the main Schools but also which children would receive them. of Social Work and Social Welfare including Developing national standards focused STKS and the University of Indonesia.
Changing the Paradigm 73 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The drafting team consisted of four members from the Quality of Care and Child-led research who had gained expertise on the situation of children in institutions and the services provided by institutions. They also had a critical understanding of what implementing the standards would entail. The team met regularly for over a year, reporting back to the Task Group on progress every few months. Financial support for this work was shared between Save the Children and KEMENSOS. During the first phase of this work a concept paper and framework was developed for the standards of care. This paper consisted of the issues that should be covered by the standards, the outcomes that should be achieved through the application of the The Task Group discussed and reviewed a standards, the rationale that provided the range of international standards relating to reasoning behind each standard, the actual children without parental care, including the standard proposed, the practice that it would Convention on the Rights of the Child, the entail and the indicator which would be used UNCRC’s recommendations on Children to measure whether the standard had been without Parental Care (2005), and the UN achieved. The emphasis was on having a draft Guidelines for the Appropriate Use and clear basis for the standards proposed, an Conditions of Alternative Care for Children understanding of what these would entail, (2007) as well as a series of national standards and agreement on some key issues of scope for childcare institutions developed in other and direction, rather than focusing on the countries, some drafted recently and others actual wording of the standard. already well established. Emphasis was also put on making the structure The group reviewed which aspects were and approach of the national standards both worth retaining for the Indonesian National comprehensive and accessible to those Standards. Agreement was reached on the who were to implement them. The need to structure and key parts to be addressed by make the standards child focused was also the standards and a smaller drafting team was discussed. Once the overall framework and tasked to present drafts on each part. Each basis provided by the concept paper was section would be composed of the proposed agreed on with the Task Group, the wording standard, the practice, and the indicators of the standards and final drafting began. for having achieved the standard. The Task Group also decided to establish a broader Key findings and learning Reference Group that would provide input from a range of perspectives as well as The draft of the National Standards of Care provide political guidance and feedback on for Childcare Institutions was finalised in the draft. The Reference Group included November 2009. The final version contains representatives from other key Ministries 168 national standards covering four main such as Justice and Human Rights, Health and areas: key principles of alternative care; Education, as well as from provincial social ensuring appropriate responses for children authorities. (which services for which children, including
74 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) family support interventions and prevention resources of the child and his or her family of separation); standards relating to the and community, and to seek to optimize provision of services by institutions; and rather than replace them. organizational standards relating to the operational requirements for institutions. The standards also highlight the rights and responsibilities of parents and families in The section on the principles of alternative relation to children’s care and protection, care integrates key provisions of Indonesia’s and they articulate the role of institutions in Child Protection Law and also the UN relation to them. The standards underline Guidelines on Alternative Care. It reaffirms the importance of children’s participation children’s right to a family and to be involved and agency, and their right to be involved in decisions relating their care; the role and in all decisions affecting their care and their responsibilities of parents and families; the daily lives, in accordance with their evolving importance of measures to prevent family capacity. The standards are addressed separation; the need for a continuum of care at child welfare institutions, social affairs options, starting with support to families offices and authorities, children as rights to enable them to care for their children; holders and beneficiaries of the services, and the need to prioritize the provision of and other stakeholders including families and an environment that can fulfil the child’s community members. needs for love, attachment, and permanence through a substitute family. The standards The draft National Standards of Care were clearly emphasize that the use of institutional presented and discussed widely the following care should be a last resort and that economic year. The draft went through the various reasons or poverty should never be the main processes needed for adoption within the reason for the separation of a child from his Ministry and other government agencies, in or her family and placement in institutional particular the Ministry for Law and Human care. Rights. During the interim period KEMENSOS adopted a policy to change the name of The standards also underline the fact that childcare institutions in Indonesian (Panti different needs will require different services, Asuhan), as it had been so widely associated and articulate a range of alternative services with residential care facilities. The change that could be provided on the basis of a was to highlight the need for institutions to comprehensive assessment of the child provide more than residential services, but and his or her family situation. The role also to ensure than any other organization and legal responsibility of the State and providing ‘care services’ to children should its representatives, including local social apply the same national standards. As a result, authorities, to protect children’s rights and the title of the standards was changed to ensure appropriate alternative care is available National Standards of Care for Child Welfare is also highlighted throughout the standards. Institutions (Standar Nasional Pengasuhan Untuk Lembaga Kesejahteraan Anak). A section called “in practice” accompanies each standard, providing illustrations of what Training in the National Standards and in the application of that particular standard the use of the National Database was also would look like for service providers and conducted for newly recruited government children. Relevant articles from national social workers being placed by KEMENSOS laws and binding international standards in institutions in a number of provinces. In are also included, highlighting the legal 2011 the National Standards of Care for Child framework that underpins each standard. A Welfare Institutions were formally adopted strength-based perspective is adopted at the by a Ministerial Decree (No 30/HUK/2011) outset, emphasizing that the role of service and enacted into law (No 303, 2011). A providers is to focus on the strengths and book containing the National Standards was
Changing the Paradigm 75 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) published by the Ministry and disseminated This could not be done in a Minimum widely, and is often referred to by institutions Standards format and the Task Group decided and local officials as ‘the red book’, the colour that a more comprehensive approach was of its cover in the Indonesian version. An needed. This meant that the drafting group English translation of the national standards had to articulate, as part of the National was published the same year. Standards, a policy framework that would guide decisions about children’s placement One consideration during the drafting of the in all forms of alternative care, as well as the National Standards was whether to establish provision of family support services to prevent Minimum Standards of Care that would children being institutionalized unnecessarily. define the level of services to be delivered As a result the National Standards are not by institutions in order to be allowed to easy to explain or to implement. They operate, or provide a framework for the are complex and far reaching and their transformation of their role. The challenge implementation will require an incremental was that the Quality of Care research had change process on the part of institutions shown that most children in institutions did and local authorities. They are seeking to not actually need alternative care. Simply transform financial and psycho-social services stating what services the institutions should provided to vulnerable children and families provide, without also articulating their role in Indonesia, starting with child welfare in preventing family separation and providing institutions. The team realized at the outset support to vulnerable children in their that such a transformation could not happen families, would only compound the problem. without adopting a comprehensive strategy On the other hand, a new policy framework for the dissemination of the standards and that would define which children needed testing their implementation through a pilot what interventions would need to go beyond approach. the role of the institutions to articulate the role of local social authorities, families and communities.
76 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) 3. Getting the National Standards of Care implemented: The dissemination and piloting process (2009-2012).
Effective regulation, minimum standards, and oversight
Meaningful coordination across government and between sectors at different levels
Preventive and responsive services
A skilled child protection workforce
What was done and why By the end 2009 Save the Children’s team distributed to institutions, organizations of advisers to KEMENSOS started to focus running social services for children and local on developing pilot interventions to test and authorities. The standards were presented demonstrate at the local level what services to faith-based organizations during national and interventions could actually work. It events or annual meetings of the heads of focused initially on two provinces, starting their childcare institutions. The team worked with Bandung in West Java province in with KEMENSOS to conduct training on the 2010, and in mid 2011 Sleman in Yogyakarta standards with local Social Affairs offices province. Both areas were selected due and institutions in Bandung, Yogyakarta, Bali, to socio-economic factors with direct Jambi, Lampung, Pati in Central Java, and, implications for children’s protection and the with support from UNICEF, in Aceh. It also ability of families to care for their children, supported a range of initiatives by local as well as strategic political considerations, networks of institutions in Blitar and Malang, particularly the likelihood the models could in East Java, Depok near Jakarta, and Bandung be scaled up and integrated in Government in West Java, to disseminate the national plans and shared with other provinces. In standards. order to support the implementation As part of the implementation strategy a of the National Standards of Care, Save National Monitoring Team was formally the Children worked with KEMENSOS established in 2011 under the Directorate to initiate a comprehensive process of General for Social Services and Rehabilitation dissemination across the country, while in KEMENSOS (Decree No 91/RS-KSA/201 also conducting more intensive piloting of of the 16 September 2011). The team the standards with six childcare institutions consists of the Director of Children’s in West Java and Yogyakarta as part of its Services acting as Chair, senior members Deinstitutionalization pilot (see Section VI.2). from the Directorate of Children’s Services, the National School of Social Work (STKS), The approach taken the University of Indonesia, the National Throughout 2011 and continuing into 2012, Commission on Child Protection (KPAI), Save the Children, KEMENSOS and other key and Muhammadiyah’s National Forum of partners worked to raise awareness about Childcare Institutions. the national standards of care with service A provincial Monitoring Team was also providers, local authorities and the public. established in the pilot provinces, chaired Thousands of copies of the ‘red book’ were by the Head of the Social Affairs Office
Changing the Paradigm 77 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) (2008 – 2009)
(Dinas Sosial), officials from the district Social The National Monitoring Team also Affairs office, members of the local Forum of developed monitoring tools for the childcare institutions and from the School of implementation of the National Standards of Social Work and universities in those areas. Care with technical support from a member Save the Children provides technical support of the Quality of Care research team, Diatyka to both teams. The monitoring teams are Widya. The tools provide indicators under independent entities but act under the each section to assess progress; to establish mandate of the Ministry of Social Affairs to a participatory process with institution staff, supervise the provision of social services for children and local authorities to map and vulnerable children. review services and to determine areas that need improvement; and a planning process The role of the National Monitoring Team to develop an improvement plan, including is to provide strategic guidance for the what measures will be taken, what resources implementation of the National Standards, are required, who is responsible for their develop monitoring tools that can be used implementation, and a timeframe. in piloting, conduct training of trainers on the standards and the implementation, and Getting the management and staff in the supervise the implementation process by institutions to engage positively and actively providing support to the provincial monitoring in this process is critical, as there are still teams. The provincial monitoring teams relatively few incentives for institutions to conduct the training of staff in institutions upgrade their services, particularly in the and local authorities, monitor progress, absence of an effective licensing system. and issue reports with recommendations Experienced managers and staff sometimes on steps to be taken by institutions to question the capacity of the government to improve implementation. It acts as a pilot provide adequate supervision and technical mechanism for the type of supervisory body support. Having operated unregulated for that will be needed to ensure the proper so long, they feel that they have been ‘in this functioning of the regulatory system for business’ longer than the government and child welfare services. It is a gatekeeping that they are best placed to decide how mechanism to prevent children’s unnecessary to run their services. Officials from local institutionalization and to ensure appropriate authorities are also often hesitant to exercise decisions are taken by agencies overseeing their supervisory role, as they are unsure of children’s placement in alternative care as their mandate and legal responsibility. well as the services they receive. Piloting of the National Standards in the six institutions in Bandung, West Java, and Key findings and learning Sleman, Yogyakarta, was continuing at the The National Monitoring Team conducted a time of writing this report and is an integral training of trainers on the national standards part of the process of deinstitutionalization with the provincial monitoring teams from being tested in those areas. Assessments of Bandung, West Java and Sleman, Yogyakarta, children’s placements had already taken place the two piloting areas, at the end of 2011. in most of the institutions, and as a result care Following this the provincial monitoring plans had been developed including, in some teams conducted their own training of cases, the reintegration of children in their the staff in the six institutions selected for families with support from the institution piloting (three from each province). and the local social authority.
78 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) (2008 – 2009)
B. The development of a legal and policy framework that prioritizes family based care, including alternative family care.
1. Placing family based care at the heart of plans and policies (2008-2009).
Child Protection laws and policies, compliant with the CRC and other in- ternational standards and good practice
Meaningful coordination across government and between sectors at different levels
Adequate funding
An aware and supportive public
What was done and why Although the 2002 Child Protection Law had collaboration with KEMENSOS. The study articulated the primacy of family care and the highlighted the reactive nature of much right of children to grow up in their families, of the services provided and its focus on this had not been reflected in the strategies, remedial interventions, and recommended a policies, operational guidelines, and services shift towards more preventive services for adopted and supported by KEMENSOS. It children and families. was therefore essential to start redirecting social services towards supporting families At about the same time that Indonesia and family based care, while also strengthening had adopted the Child Protection Law the alternative care system. The Quality of the government had begun major reforms Care research had highlighted challenges of its social protection programs, having for KEMENSOS and the Directorate for recognized the need to establish a more Social Welfare and Services for Children in comprehensive social assistance system. In particular. Throughout 2008 and 2009 the 2005 the government had launched a National Save the Children team and its partners Strategy on Poverty Reduction and the country’s conducted intensive dissemination of the public expenditure on social assistance more findings and facilitated discussions about than doubled in 2005, increasing significantly their implications for the child protection every year after that. system as a whole. Starting in 2007, the government also In 2009 the new Head of the Directorate introduced a major conditional cash transfer was appointed. Previously deputy in the program, the Hope For Families Program Planning Unit of the Ministry, Mr. Harry (Program Keluarga Harapan-PKH) seeking to Hikmat had been one of the team leaders reduce the gaps in very poor families’ access during the Quality of Care research and to health and education services. Managed had seen firsthand the challenges faced in by KEMENSOS, PKH provides quarterly institutions. He understood fully the need payments to poor households with pregnant for a paradigm shift and began the process or lactating mothers with newborns, toddlers of integrating it into the Directorate’s or school aged children that are conditional planning processes. Also in 2009, UNICEF on participation in locally provided health and commissioned a study by Child Frontiers education services. Initially a pilot program of the Child and Family Welfare systems in in seven provinces, it was expanded to 18
Changing the Paradigm 79 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) provinces covering 800,000 households by PKSA to communities where a high number of the end of 2011. families have tended to send their children to institutions in Bandung or where institutions These reforms provided an opportunity to have tended to recruit children on a regular advocate for a shift in social assistance to basis. The aim is to test the effectiveness of vulnerable families towards strengthening the PKSA model in preventing children going families’ ability to care for their children, into institutional care. including improving access to basic social services. In 2009, the Directorate of Social Save the Children’s partnership with Services for Children introduced a cash service providers, particularly faith- transfer program for at-risk children, the based organizations, had highlighted the Social Welfare Program for Children- PKSA. importance of getting these major social The program was introduced to support actors on board. While the Government has the paradigm shift, enabling assistance to be overall responsibility for such services, these provided to these children in their families organizations are the primary providers of rather than in an institution. It is targeted them. These organizations received little at the five categories of children receiving guidance and had huge discretion to act and assistance from the Ministry of Social Affairs: provide whatever they saw fit. Some of them, neglected children under five, street children however, were keen to ensure they provided and neglected children above five, children the right services and to improve the quality in contact with the law, children with of their interventions. disabilities and children in need of special protection. The program provides hybrid Muhammadiyah is a major provider or cash-and-service based transfers, combining social services in Indonesia and, together child savings accounts with facilitated in kind with Aisyiyah, its women’s movement, it assistance from the agency receiving the runs day care centres, pre-schools, schools, transfer and responsible for its delivery to universities, hospitals and community the child (World Bank, 2012). It is hoped that health centres, religious facilities, childcare the cash transfers will be used to address institutions and welfare centres across the basic needs and access social services country. Although its membership is smaller (birth certificate, education, health) while than Nahdlatul Ulama (NU), it has 29 million working with the child’s family to strengthen members and has a much more centralised knowledge and good parenting practices organization with established decision- (Pusat Kajian Perlindungan Anak, 2011). making structures and mechanisms from national to grassroots levels. It is also a highly Although Save the Children had concerns influential organization, at both political and about the model, it worked with the religious levels. Directorate to support the identification of at risk children who could benefit from Key members of Muhammadiyah and Aisyiyah the intervention, and provide training to the were involved throughout the Quality of Care government social workers (Sakti Peksos) process and the development of national hired to supervise its implementation. standards of care and had acknowledged the Following the establishment of the Child and need to redirect services for children towards Family Support Centre in Bandung in 2011, more family centred approaches. Working in the team also worked to ensure access to partnership with both Muhammadiyah and the PKSA for children and families receiving Aisyiyah to support an organizational shift services that fit the criteria. Since 2012 the at the national level towards family centred team has also encouraged the provision of approaches was therefore also crucial to the shift of paradigm in Indonesia.
80 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The approach taken In June 2009 the Directorate invited key partners and stakeholders to provide input to the development of the Directorate’s strategic plan that would feed into its five year plan. In addition to the Save the Children team of advisers, UNICEF, World Vision International, Plan, Komnas PA (a child protection NGO), the ILO, IOM and the World Bank participated in a comprehensive brainstorming workshop to develop the strategy. Banner advocating family based care being set up in Jakarta Save the Children presented the learning and on the occasion of the National Day of the Child in 2009 conclusions from the work done so far on the use of residential care for children and their assistance to families, including social services implications for the child protection system for vulnerable groups of children. A team as a whole. The Directorate’s Strategic was established under the Vice-President Plan for Social Services for Children 2010- to coordinate the efforts of different 2014 (RENSTRA Direktorat) placed families government agencies (TNP2K- Tim Nasional and their role in the care and protection of Percepatan Penanggulangan Kemiskinan) and children at its core, and highlighted the need ensure better integration and delivery of the to conduct widespread awareness-raising programs. and socialization campaigns about children’s rights and the role of families. It included During this period the Save the Children the development of a program for vulnerable team continued its work to advocate for families to support them in fulfilling their care the adoption of a child and family centred role and model family centred interventions. approach to child protection. At the end of Institutions would provide ‘multi-model’ 2009 it published an article laying out the services, including outreach and support reasons for that change and the steps needed to children in their families. The strategy to implement it in the Ministry of Social Affairs also entailed ensuring the implementation of Magazine (Martin, 2009). It was also part of operational standards by service providers a reference team established by the National and increasing the professionalism and skills Development Planning Agency (BAPPENAS) of the social workforce providing services to in 2010 to conduct an evaluation of the children and families. Ministry of Social Affairs’ child protection programs. It provided technical support to The Strategic Plan was incorporated in the the Director General for Social Services National Medium Term Strategic Plan for and Rehabilitation, Mr Makmur Sunusi, who the Ministry (RENSTRA 2010-2014), which attended a major international conference highlighted that the objective of the Ministry’s on protecting children without parental care programs in relation to vulnerable children organized by Save the Children UK together was to provide social assistance to restore with UNICEF and The Better Care Network. the primary role of families to care for their Mr. Sunusi presented the work being done children. Child protection also became an in Indonesia to shift the paradigm away from inter-sectoral priority under the National over-reliance on residential care. Medium Term Development Plan (RPJMN) 2010-2014. In early 2010 the President Changing the public discourse on family issued Instruction No.1 on Speeding up based care was also a major objective of the Implementation of National Development this work. The advocacy work had started Priorities, requiring a consolidation of social to publicly raise questions about the role
Changing the Paradigm 81 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) of institutions. Explaining why family based become a member of the Family For Every care was important for children was the next Child Coalition in 2011, an international step. Although Indonesian culture and social alliance working to support and promote discourse is strongly family focused, very family based care for children. 29 little attention was being paid to the critical role of family care in children’s development Key findings and learning and wellbeing. Awareness of the potentially negative impact of institutionalization was The shift towards family centred social extremely low among government officials assistance in KEMENSOS’ strategic plans and policy makers as well as members of was a crucial first step in articulating the the public and service providers. Institutions shift of paradigm. It was clear, however, that were seen as the obvious solution to any implementing it would not be easy. The challenge that a family might face. Getting services for those the Ministry still referred different messages out was essential. to as “people with social problems” consisted of small-scale livelihood initiatives, cash In 2006 the team established a National Family transfers, and ‘rehabilitative’ services that Based Advocacy Group (FBCAD) to carry were primarily residential based. Changing out advocacy and communication campaigns that will require the development of new promoting family and community based care approaches and services. It also entails and encouraging a gradual shift of child welfare achieving a much wider ‘culture change’ services in this direction. The Group included than the one achieved in the Directorate both government and non-government actors for Children Services and some key partner working on child protection, in particular organizations. KEMENSOS, UNICEF, Child Fund, Plan, Muhammadiyah, IRC and Save the Children. The challenge is that services provided in an Joint communication was developed around institution seem very concrete and visible. strategic days, such as National Children’s There are headboards at the front of the Day (Hari Nasional Anak- HAN) and joint building that announce to the public the events were organized in partnership with services provided and who supports them, KEMENSOS each year highlighting the with names and logos of donors prominently importance of family based care. displayed. The children can be counted, theoretically at least, the money disbursed Save the Children also worked closely with more easily and the limited resources can Muhammadiyah and Aisyiyah to support be gathered under ‘one roof’. The reality, preparations for the organization’s five-year of course, is not that simple. Much fewer national strategic planning meeting in mid children can be supported through residential 2010. The team presented the findings from services than by working with their families the research and contributed to discussions at the community level. Family services, about their implications for strategic if effectively delivered, are also known to planning and policies. Muhammadiyah is have a broader impact by supporting family testing deinstitutionalization processes in functioning as a whole, building community some of its institutions and is implementing level resources and strengthening coping a process of ‘revitalization’ of institutions as skills and strategies to respond to a range of community centres, renamed ‘Child Centres’ crises and challenges. Research in a number to emphasize their role in providing outreach of countries has shown repeatedly that social welfare services to vulnerable children the longer-term cost of institutional care and their families. Muhammadiyah has also is vastly more expensive than community
29 This is link to Muhammadyah policy on family based care in Bahasa: http://mpsppmuh.or.id/component/content/ article/43-child-centre/90-children-centre-qsebuah-upaya-merevitalisasi-pantiq.html and http://www.cci.or.id/profile/ profil-organisasi.html
82 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) outreach services (Browne, 2009; Save the support to families facing diverse and often Children, 2009; EveryChild, 2009). But the multiple risks, there are very few agencies walls and roofs of an institution can become that provide services to address those to a child welfare system what schools are needs. Policies prioritizing residential based to an education system, or hospitals and interventions have undermined the growth clinics to a health system. They represent of child and family centred services at the an investment that can be easily seen by community level. In some cases, NGOs donors and the public alike. They become a that used to deliver outreach services had trademark. Childcare institutions have been to transform into residential care service a trademark of the Ministry of Social Welfare providers in order to access funding from and of key service providers in Indonesia the government. As a result, the Directorate for at least a couple of decades. They were has had to rely primarily on child welfare also the trademarks of child welfare services institutions to deliver the PKSA, the Lembaga in industrialized countries in the Western Kesejahteraan Sosial (LKSA). Most of these hemisphere for centuries, before major have traditionally only provided residential reforms changed that situation over the care services. last forty years. The fact that the services provided are not effective or appropriate The PKSA also covers some operational rarely gets to be witnessed by others. costs for the service providers, in effect Changing this situation, realistically, requires ‘contracting out’ the services through that a new trademark, a shift of vested interests agency. When the LKSA or NGO is able by donors and service providers. to deliver the range of community services needed by those children and their families, The paradigm shift will require a shift of this system may act as a useful mechanism for vested interests by donors and service ‘contracting out’ public services. However, providers. Conditional cash transfers have in most LKSA/institutions have limited capacity part provided that for families facing chronic to deliver outreach services to families. poverty. There is growing evidence that, when As a result, what is being contracted out done well, cash transfers can lift families out is whatever the agency can deliver, not of poverty (Barrientos & Nino-Zarazua, 2011) necessarily what the child or the family but cash transfers are only effective to the needs. In addition, the LKSA can only reach extent that there are services accessible to out to children who fit both the poverty children and their families in their communities. criteria and the ‘problem status’, such as the child being on the street or disabled, raising While the cash transfer provides an questions about how the agency can deliver important incentive, if it is not accompanied services to families needing support for by other forms of social support to families multiple children. it is unlikely to provide any real solution. Finally, child protection issues cannot The capacity of the Ministry of Social Affairs always be addressed by using a poverty lens. to ensure the cash is used appropriately or Although research has shown clear links the quality of the services provided, is also between poverty and the ability of a family minimal. Until recently, there was little to care for its children appropriately, and it involvement from the district government’s is a major risk factor for abuse, violence and Social Affairs offices responsible for services exploitation against children, many children to children in those areas. The Ministry facing protection issues are living in families recruited over 600 Sakti Peksos (graduates which are not poor, and most children living from social work hired by and reporting to in poor families do not face protection issues. the Ministry) who are based with the local service provider and are meant to provide Although PKSA represents a crucial first support and supervision to the social attempt by KEMENSOS to provide direct
Changing the Paradigm 83 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) assistant (Pendamping Sosial) assigned in the however, will require the development of a LKSA to deliver the services. However, these range of services and interventions at the social workers can do little more than ensure community level, delivering both economic proper reporting procedures are followed. and psycho-social assistance to children and Also, although PKSA receives the largest their families on the basis of their actual share of the budget among the cash transfer needs. programs provided by KEMENSOS, it reaches the smallest numbers of beneficiaries, less Some child welfare institutions will be able than 5000 in 2009 across 24 provinces. to transform to deliver this, but many will not and different service providers will be The comprehensive reforms undertaken needed. These services fall under the direct by the Indonesian government in the legal responsibility of the government and provision of social assistance have created while they certainly can be delivered by opportunities for the development of a private and charitable local organizations, more comprehensive child welfare system. these service providers must be regulated By recognising that the primary aim is to and supported by the local authorities. It support families to fulfil their critical role is therefore essential for the national towards their children, these policies can government to start to work with district actively strengthen the capacity of families level authorities to develop effective to care, ensuring their access to basic strategies, mechanisms and resources to social services, and supporting their social deliver a minimum package of public social functioning. Implementing these policies, services for vulnerable children in Indonesia.
84 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) 2. Strengthening the legal framework for family based care alternatives: Guardianship, foster care and adoption (2006-2012).
Child Protection laws and policies, compliant with the CRC and other international standards and good practice
Effective regulation, minimum standards, and oversight
Knowledge and data on child protection issues and good practices
Meaningful coordination across government and between sectors at different levels
What was done and why Although the 2002 Child Protection Law needed to be clarified. Allegations of abuse had recognised guardianship, foster care and by individuals who had declared themselves adoption as care options for children deprived legal guardians and then acted to take away of parental care, there was confusion about children’s property and inheritance following the rules and procedures for placement in the death of their parents were also emerging. these forms of alternative care. Resolving the conflict of law (religious and civil) and the confusion inherent in the Child Guardianship in Indonesia is established Protection Law became a priority in Aceh and under two legal systems, the religious court Save the Children, together with a number of system and the civil law system. Under actors as part of the FTR Network, worked both systems, it referred primarily to the with the local courts to try to clarify the appointment of an individual to act as the situation. child’s legal representative in relation to marriage and inheritance decisions when Discussions on a draft Government Regulation the child’s parents have been declared legally on Guardianship had taken place since 2003. incompetent or their whereabouts are The regulation was needed to implement unknown (Law no 23 on Child Protection, the provisions of the Child Protection Law, Articles 33-36). Those articles said nothing and it provided an opportunity to discuss about taking responsibility for the care of an important alternative care measure for the child. The Child Protection Law also children facing acute protection issues. The used the term ‘guardian’, but to refer to team was unable to identify any precedent someone being assigned temporary parental where removal of parental rights had been responsibility by a court of law, when the acted on by a court of law. The Directorate biological parents’ right had to be revoked of Children Services was not aware of any under certain circumstances, such as when occurrence and had never sought such parents neglected their responsibilities measures on behalf of children needing towards their children (Article 31-32). Those protection. articles clearly implied that the ‘guardian’ would act both as caregiver as well as legal Adoption is also an option under the Child substitute for the parent. Protection Law. It can be conducted under local customs or under the law, although it In the post-tsunami context, guardianship does not clarify whether customary adoptions became a ‘live issue’. There were a number of must also be endorsed by court decisions. legal implications to taking care of a child that The provisions also clarify that adoption by
Changing the Paradigm 85 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) foreign nationals can only be allowed as a has the authority to do so. Fostering can last resort. This reflects the principle under be conducted by these organizations inside international law that domestic adoption or outside an institution and individuals who should be prioritized, except that it focuses wish to foster must go through one of these on the nationality of the potential adoptive organizations. Apart from specifying that the parents rather than residence. organization providing the fostering services must share the same religion than the By 2006 a draft regulation on adoption had potential foster child, the law says nothing been discussed for almost three years, and about how these organizations get their it limited quite strictly who could adopt and authority, what process individuals who wish which children were eligible. Only children to foster a child should follow, or what role is under five were eligible to be adopted. A to be played by the child’s biological parents. couple wanting to adopt could only have It also does not state who determines that one child, had to have been married for at the parents are unable to guarantee their least five years, and had to be between 30 child’s well-being and how such decisions are and 50 years of age. Only one child could to be arrived at. be adopted per family, with an exception for twins but not other biological siblings. By 2007, no regulation had been drafted A great emphasis was placed on what was on Foster Care to clarify this. In fact, no considered ‘inter-country’ adoption, although rules existed about children’s placement in it related to adoption by any couple where institutional care, and the legal implication of one of the partners was a foreign national. such placements for the parents’ rights and This created considerable confusion about responsibilities towards their children. The what would happen to couples living in Quality of Care research had highlighted that Indonesia when one of the partners was in many cases parents were considered by not an Indonesian national. On the other the institutions to have ‘relinquished’ their hand, the provisions concerning domestic rights over their children for the period of adoptions were vague and left a great deal of their placement in care. The management discretion to institutions about whether and and staff of the institution could also take how to facilitate adoptions. major decisions about the child without consultation with the parents. However, Despite the fact that adoption was clearly parents were to agree to take children back provided for under the law, and that it followed immediately in cases of ill health requiring Islamic principles in all cases, discussions about costly medical services, or if they were the regulation had highlighted a great deal of expelled for breaking the rules, including not resistance about the practice. The Children’s performing at school. Directorate only collected data about ‘inter- country’ adoptions and its only mechanism Although there was no doubt that informal for supervising children’s adoption related to family based fostering arrangements and these. An inter-ministerial team (Tim PIPA) adoptions were widespread, there was existed to review and decide on applications little data on these practices or on formal by foreign nationals. The lack of focus on adoptions and foster care in families. The domestic adoption was problematic. Ministry of Social Affairs had no system to recruit potential adoptive or foster families Foster care is also provided for under the for children deprived of parental care. It was Child Protection Law, under a section called clear that a more comprehensive legal and “children’s care” (Articles 37-38). These policy framework for the use of alternative provisions state that children whose parents care was needed, covering not only the use “are unable to guarantee their proper physical, of residential care but also the provision of mental, spiritual and social development” can alternative family based care. This became be fostered through an organization that
86 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) a priority for Save the Children’s team of domestic adoption and establishes clear advisers. mechanisms at district and provincial levels to enable this. By 2009 the impact of the In order to build a better picture of the work on family based care was being felt situation of children facing care issues, Save and the discussions on the PERMENSOS the Children collaborated in 2007 with the highlighted some of the remaining gaps in the National Statistical Bureau (BPS) to extract Adoption regulation. The team worked with data from a National Population Survey KEMENSOS on strengthening procedures (Module Kependudukan- MK) conducted to and ensuring systems were in place at local complement the 2000 Population Census. level to enable children to be adopted. The survey covered all but two provinces and provided a national and provincial level It also encouraged a more proactive system picture of the situation of children under of registration of potential adoptive families. fifteen and their relationships to the head The Directorate began to work more actively of the household as well as their parental with a number of provincial and district status. This data had not been published social authorities to pilot mechanisms to or analyzed before and it would provide review social assessments of families and important evidence of children’s care ensure appropriate legal decisions were situations that could inform legal and policy taken on adoption applications (Tim PIPA developments. The team developed with BPS Daerah). Important discussions also took a set of tables providing, for the first time, place on inter-country adoption and the sound estimates of the numbers of children team provided material and explanations who were orphans, who had lost one parent, about the definition used and procedures were living with a single parent or living in required under the 1993 Hague Convention extended family care. on Inter-country Adoption. In 2011, Save the Children collaborated The approach taken with KEMENSOS to organize a workshop The team began its work to support the with stakeholders from a number of development of a more comprehensive legal other Ministries and non-governmental framework for alternative care by contributing organizations on the 1993 Hague Convention. written comments and participating in The team presented the scope and clarified the discussions on the drafting of the the provisions of the Convention and the Adoption and the Guardianship regulations implications of ratification for Indonesia. in 2006. It provided clarifications about Following this, the Ministry of Social international standards applicable in the Affairs integrated into its plans for 2012 Indonesian context, as well examples from the development of an academic paper to other countries. As a result of this work, support further discussions on ratification. in 2007 some positive changes were made By the time a Task Group had been to the text of the Adoption Regulation that established in mid 2008 to consider drafting was finally adopted, including lifting the age national standards of care for childcare limit of eligible children to 18 and potential institutions, it was clear to both government adoptive parents to 55 (PP No 54 2007). and non-governmental participants that a In 2009, the Children’s Directorate started more comprehensive legal framework for to draft the technical rules (PERMENSOS) alternative care was needed. Discussions that would guide the implementation of on the draft regulation on Guardianship the 2007 Adoption regulation. Save the had stalled and there was still a great deal Children participated actively in this process of confusion about implementing the newly and advocated for a system that promotes adopted Regulation on Adoption. The Child
Changing the Paradigm 87 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Protection Law had provided the basis for support from UNICEF, and Save the Children an alternative care system but Government provided the technical advice. In June 2011 regulations were needed to bring it to reality. the Indonesian President approved the initiative and formally requested KEMENSOS Unfortunately the Child Protection Law had to involve other key Ministries. The draft was itself taken quite a fragmented approach and finalised in late 2011 and sent to the Ministry while it stated that government regulations of Law and Human Rights for final review. As were needed to implement both the adoption of 2012 that process was still ongoing. and guardianship provisions, it did not for the foster care system, whether institutional or Save the Children is in the process of piloting a family based. The Legal Bureau in the Ministry mechanism for children’s placement in foster of Social Affairs pointed out that under the care with the West Java social authorities, rules of legal drafting in Indonesia, no such as part of its Deinstitutionalization pilot regulation could be drafted without explicit (see Section VI.2). The draft regulation reference to the need for it in the law. The on alternative care was presented and decision was therefore taken to focus first became the basis for discussions with local on the National Standards of Care and to social authorities and service providers in begin to etch out the overall framework for that province for the establishment of the the provision of alternative care through this mechanism. process. By 2010 the National Standards of Care Key findings and learning were complete and there was much The data gathered by BPS as part of the greater support for the development of Population Survey (Module Kependudukan- such a framework. The draft Guardianship MK) of 2000 confirmed the critical role regulation was still being discussed and the extended family care plays in Indonesia. need to revise the Adoption regulation was It also highlighted that, in comparison, understood by many. Developing an overall institutions play a very minor role in caring regulation that would articulate how these for children deprived of parental care. It different forms of alternative care would be estimated that there were 217,000 children delivered became a priority. under 15 in Indonesia who had lost both In January 2010 KEMENSOS organized a parents through death (0.4% of population meeting of key agencies to be involved in of children under 15). The survey found that this process to decide on a way to move 76% of these children were being cared for forward. The legal drafting issues were by family members. resolved by referring to provisions of the The 2000 MK data also showed that most 1979 Child Welfare Law that had required children who had lost one parent as a result the drafting of such regulations but had of death lived with the surviving parent or never been followed up. A drafting team with other family members. An estimated was established composed of the Ministry 1.7 million children under 15 had lost their of Social Affairs, including its Legal Bureau fathers through death (yatim) and over and Directorate for Children’s Services, the 740,000 had lost their mother through death Ministry of Justice and Human Rights, the (piatu). 92% of children whose father had Ministry of Women’s Empowerment and died were living with their mothers, while Child Protection, the Ministry of Internal 74% of children whose mother had died Affairs, the Ministry of Foreign Affairs, the were living with their father, indicating some State Secretary, the National School of Social differences in social and cultural practices Work and representatives from key service regarding the care of children who have lost providers, including Muhammadiyah. The a mother. drafting process was led by KEMENSOS with
88 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The 2000 data also estimated that 3.4 million also incorporates guardianship, adoption children under 15 were living with a single and foster care within the framework, mother (46% of these children had lost their emphasizing the importance of providing a father through death) and just over a million family-like environment for children to ensure were living with a single father (54% of these permanency and attachment. The regulation children had lost their mother through articulates the role of residential care as a death). In addition, the data also pointed temporary measure until more permanent to high numbers of children (2.15 million) and suitable care can be provided and as last who were not living with either parents resort. The draft incorporates key principles but instead with other family members, articulated under the National Standards of in particular grandparents (58.6%) as well Care for Child Welfare Institutions and from as other members of their families (30%). the UN Guidelines on Alternative Care. It 72.5% of these children still had both parents, attempts to clarify some of the confusion indicating that death of a parent was not the and fill some of the gaps under the Child primary reason for children being placed in Protection Law, but this was not always the care of their relatives. possible without also amending the law. The survey also pointed to significant numbers The requirement to make decisions about of children living in foster care or adoption appropriate alternative care on the basis arrangements, although the data collected of a comprehensive assessment by a does not provide the information needed to qualified social worker is introduced. The identify whether these are informal or formal responsibility of local social authorities to care arrangements. Almost 17% of children oversee children’s placement in alternative who had lost both parents were living in a care and ensure it is in accordance with household where they were considered ‘a the regulation and the best interest of the child’ of the household head. This provides child is clearly stated. Local authorities must a strong indication that adoption and foster establish a Review Council for Foster Care, care in Indonesia is neither new nor rare. Guardianship and Adoption to oversee all alternative care placements (Dewan The MK data provides an important evidence Pertimbangan Pengasuhan, Perwalian dan basis to support the development of more Pengangkatan Anak -DP4A). effective policies and social assistance to facilitate and support ‘care in the family’. In Local social authorities are also required to particular, it highlights the need to target social provide primary and secondary prevention services and assistance to vulnerable groups services to strengthen family care, through of caregivers in order to prevent children’s increasing parenting knowledge and capacity placement in institutional care, including and by delivering more targeted family single parents and alternative caregivers support interventions for more vulnerable such as grandparents. Understanding the families. Children’s right to express their situation of children living with adoptive or views about care decisions and to report any foster families is also critical to ensuring they issues relating to their care is also included. receive the stable and secure environments A child’s formal consent must be sought by they are entitled to under the law. prospective parents in adoption proceedings, if the child has the capacity to do so. The draft Regulation on Alternative Care Guardianship is recognised as an important provides a comprehensive framework that measure to assign legal responsibility for a affirms the primacy of family based care, child’s care, and criteria for the selection of prioritizes family preservation efforts, and potential adoptive parents are also made less establishes kinship care as the first alternative restrictive. Getting the draft adopted is the for children deprived of parental care. It next step but it is also the beginning of the
Changing the Paradigm 89 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) next stage; establishing on the ground the formalizing and supervising these care system to implement it. arrangements to ensure children are taken care of, provided with a safe and nurturing Discussions on the draft revealed the environment, and not exploited. Children complexity of formalizing alternative care needing alternative care and their families arrangements where they have been almost must be able to access services and support entirely unregulated. The alternative care from mandated and responsible agencies in system needs to provide mechanisms for their local communities.
90 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) V. Establishing child and family centred social work practices
Save the Children recognised early on that a management workforce, operating primarily shift of paradigm from primarily residential as program staff or bureaucrats. Even when based services towards child and family they were involved in policy development centred services would also require a change this was carried out in a way that was almost in the competencies and mandates of social entirely disconnected from the reality of the workers. It worked closely with some of the needs on the ground or the services delivered. key schools of social work from the start, There were very few qualified social workers in particular STKS, the National School of providing psychosocial support or working Social Work established under KEMENSOS directly with vulnerable children and their in Bandung, and it adopted a capacity building families outside of institutions. Those that approach with these throughout. did tended to do so in the context of ad hoc and limited NGO programs, rather than as One of the main challenges of Indonesia’s part of a child protection system with clear over-reliance on institutional care was that mandates and responsibilities. it resulted in few social workers having the skills, competencies or mandates to work This situation presented a serious challenge directly with children and families, the to the redirection of social services towards majority becoming administrators. Most children and families, and to ensuring senior social work lecturers or professors practices that could support children in had never gained practical experience of family care or family based alternative care. working with individuals and communities Reforming the social work system was thus and were therefore training new generations a key part of reforming the child protection of social workers without being able to relate system. Achieving this, however, would entail social work practice theory to the reality of addressing issues that would go well beyond children’s lives and the interventions and the scope of services provided to children approaches needed. but were instead at the core of the social welfare system as a whole in Indonesia, and Trained social workers working in government the mechanisms established to deliver it. at national and local levels were also generally functioning as an administrative and
Changing the Paradigm 91 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) A. Strengthening the framework for social work education and practice: Certification and Licensing (2009- 2012)
A skilled child protection workforce
Effective regulation, minimum standards, and oversight
Meaningful coordination across government and between sectors at different levels
What was done and why
Indonesia has a long and important tradition Neither practitioners nor the academic of community-led social welfare services bodies responsible for the development of that predates the establishment of the the core knowledge and skills had agreed Indonesian State. A positive impact of this on a common definition of social work in has been the continuing involvement of many Indonesia that could be shared. private organizations in the delivery of social services at the community level. As with the Social work ‘practice’ tended to be development of social welfare systems in perceived as the vocational and lesser part other countries, however, the origin of these of a social welfare ‘science’ that was primarily interventions in ‘charitable organizations’ theoretical. A major area of the debate was raised questions about the nature of social terminology, and in particular the use of the work, and whether service providers term ‘social worker’. Beyond these debates, were accountable to the beneficiaries and there was remarkably little discussion should be held to certain standards of as to what services were needed by the practice. With the establishment of State populations supposed to be served by those structures and obligations, and the adoption systems, or what skills and mandates were of a human rights framework, the need for needed in order to deliver them. standardization of services and ensuring An Indonesian Association of Social Welfare their accessibility and quality became clear. Educational bodies (Ikatan Pendidikan Social work must be accountable, ethical and Pekerjaan Sosial Indonesia-IPPSI) had been shown to be effective. established in 1986, but had not met in Although a National Association of Social over six years. Chaired at the time by the Work Professionals had been established Head of the Research and Training Body in1998, (Ikatan Pekerja Sosial Profesional in the Ministry of Social Welfare, lack of Indonesia- IPSPI) its membership was funds and energy seemed to have frozen informal. The Association was led by some it. Meanwhile, there was no agreement on experienced and well-respected Indonesia a national curriculum that could ensure social workers but it lacked momentum and graduates from social welfare or social a clear agenda for the profession. It could not work programs would come out with the be said to speak on behalf of anyone and its core knowledge and skills that would enable legal status and organizational basis remained them to contribute effectively to the policy unclear. It also did not have the recognition development, management and delivery of and standing needed to develop a vision social welfare programs and services. As for social work practice in Indonesia or a a result, social work education programs framework for standardization of practice. varied enormously between universities and
92 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) schools in terms of both curriculum and More recently the Ministry of Social Affairs what was understood as ‘social work’. had developed and promoted a system of sub- district social workers (Tenaga Kesejehateraan The field practice approach was often Sosial Kecamatan-TKSK) operating across the absent or very limited. No specialization in country. There is supposed to be one TKSK social work practice for different fields or per sub-district, and his or her function populations, including children and families, is primarily to gather social data to be fed was available except at the National School back through the province to the central of Social Work (STKS) in Bandung. STKS is government. The TKSK generally does not a government run school managed under have the capacity or the mandate to respond KEMENSOS and is primarily tasked with to individual issues as they arise, and they preparing civil servants to enter government work mostly to support the administration service, mostly to work as administrators of of social assistance. They are rarely qualified programs or bureaucrats. social workers but some have a diploma This situation also meant that social work in social welfare or have graduated from graduates received little recognition for the vocational high schools with a specialization skills and expertise that they could bring to in social welfare (SMK). addressing social situations and, in turn, they This fragmentation of the social work lacked confidence in their contribution. The system meant that it was unclear who was Ministry of Social Affairs often hired at the responsible for children facing care and highest level individuals who had no social protection issues and whether they had the welfare background or education, and social knowledge, resources and capacity to address work graduates were often placed in positions them. The over-reliance on residential care where they would not be able to contribute solutions had restricted the development the knowledge or expertise they had gained. of direct support services for children and Some joined NGOs, where some of the families at the community level, and the social most experienced social work practitioners workers meant to develop and deliver such working with children and families can still be services were primarily versed in residential found, but where most also end up managing based approaches. projects rather than developing best practice interventions or supervising the delivery of Even among the most seasoned of those interventions. practitioners, for example, there was little recognition of the importance of attachment In the mid 1980s the government had to children or the possible negative impact established a major network of ‘community of institutionalization. Most of the senior social workers’, the PSM (Pekerja Sosial faculty members in the leading universities Masyarakat). Members were generally local and School of Social Work had no experience community volunteers. In some communities of clinical practice. Case management, or an the PSMs are playing an important role, but in ecological system approach, were theories; many communities the PSMs appear to have the practice was residential care services. ceased to function. The Ministry no longer Even the limited field practice experience provides support and without support provided to students of social work often and supervision their capacity to address took place within the walls of an institution concerns and respond to situations in the and was mostly research based. community could only be limited. There was also little clarity about their role and mandate Unless Indonesia had a workforce of social in responding to individual situations and workers that understood the importance how their responses would connect to of family based care and could support the higher-level agencies with responsibility for paradigm shift of services in the field, it would children’s care and protection.
Changing the Paradigm 93 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) not happen. Reviewing children’s placements recognition of the need for professional in residential care, identifying and assessing social workers as well as para-social workers, alternative care options for children and social volunteers and social educators delivering family support interventions (Article 33), and for a system of certification to prevent separation required the skills, for them and accreditation of organizations competencies and knowledge needed to providing social services (Articles 51-53). It approach, engage, facilitate and empower also referred to the role of the Association children and families. These critical skills of Professional Social Workers to ensure also needed to be backed by mandates and standards of practice, and of the Association systems that would ensure the decisions of Educational Bodies to ensure the quality and services provided could be reviewed of social work education. and called into question with the agencies legally responsible for their delivery. For In April 2009 Save the Children convened a social workers used to ‘managing’ children broad Working Group of senior social work through mostly unregulated institutions, this educators, practitioners and policy makers represented a huge shift in practice. to discuss the implication of Law No 11 for social work practice, with a focus on children and families. After the initial meeting it was The approach taken agreed that the primary aims of the Working The Quality of Care and Child-led research Group would be to provide input into the process had already involved some of drafting of the Ministerial Regulations in Indonesia’s most experienced and talented relation to the certification of social work social work practitioners and teachers. professionals and para-professionals, and They had built on their skills during those the accreditation of social welfare service processes and were in a unique position providers. to begin the process of developing the The Working Group on Social Work was a mandates and skills needed to support social think tank and an advocacy group to ensure work practice with children and families. that key policy makers and professionals were Save the Children, therefore, needed to able to contribute to the development of an work with them to develop the framework effective, accountable social work system. for social work education and practice that Members of the Working Group included would enable social workers and para-social the Ministry of Social Affairs, in particular workers to engage differently with children its Children’s Directorate, its Legal Bureau and their families. and its Education and Training directorate At the beginning of 2009 a new law on Social (Balai Diklat), the National School of Social Welfare (No. 11) was adopted to replace Work (STKS), the social work/social welfare the previous law adopted in 1974. Massive departments from Widuri University, the changes had taken place in the country, University of Padjadjaran, the University of including the ratification of major international Indonesia, Muhammadiyah University, the human rights conventions with important State Islamic University (UIN), the National implications for the welfare system, including Association of Professional Social Workers the International Covenant on Social, Cultural (IPSPI) and the National Association of Social and Economic Rights and the Convention on Work Education Bodies (IPPSI), Building the Rights of the Child, as well as key national Professional Social Work (BPSW) - a New pieces of legislation adopted since, including York based NGO working in Indonesia the Child Protection Law No 23 (2002). whose director was also teaching advanced social work at two of the main schools of Although that law said little about the social work in Jakarta - as well as individual social work system, it nonetheless provided senior social work practitioners.
94 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The Working Group began by mapping the and it was clear that the social work reform social work system in Indonesia, identifying process in Indonesia would require the existing resources and networks, and revitalisation of both these Associations. reviewing the legal and policy framework The Working Group developed a matrix of for social work practice. The implication actions needed to implement the Regulation of recent research findings about children and ensure a solid foundation for the in institutions to social work practice was certification system. Members divided into also discussed, including the types of systems groups to work on different aspects of these and services that would be needed at the changes, including organizational changes community level for children and families; and needed by both Associations, as well as the skills, mandates and structures needed changes needed to begin the standardization for social workers to be effective. of social work education and practice in Indonesia. The relationship between the government and the profession, and the role of certification, In December 2009 Save the Children licensing and accreditation in regulating the facilitated a series of meetings with both quality of services and interventions provided, IPSPI and IPPSI leaderships and stakeholders, were also reviewed. The group researched and both Associations developed plans for social work systems from other countries, holding major national congresses with their including different licensing and certification members and partners to present the new approaches, particularly within the region. certification and licensing system and to The Working Group decided that it would agree on ways forward for the organizations. be important to focus first on establishing a sound basis for professional social work, as The National Congress of the Association it would be critical to the technical support of Social Work Education Bodies (IPPSI) was held at the University of Padjajaran needed by para-social workers and social th th volunteers working at the community level. (UNPAD) in Bandung on the 13 and 14 of January 2010, with support from Save The Working Group contributed directly the Children. A new management and to the drafting of the Ministerial Regulation organizational structure was established and on the Certification of Professional Social agreement was reached on a program plan Workers and Social Welfare Officers (TKS) that included developing and agreeing on a and the Ministerial Regulation on the core curriculum for social work education, Accreditation of Social Welfare Organizations. competency standards for certification and Both regulations were adopted before the practice requirements. Over 120 lecturers end of 2009.30 Following the adoption of the and senior academics of 26 universities Certification Regulation, Save the Children and schools of social work from across the continued to provide support to the Working country attended. A separate meeting of Group members to develop a road map the rectors of the universities was also held for its implementation, including reviewing to discuss the implications on social work its implications for the key members of education of the new Ministerial Regulation the Certification process, the National on Certification. The Head of the Social Association of Professional Social Workers Welfare department of the University of (IPSPI) and the National Association of Social Indonesia (UI) was appointed as the new Work Education Bodies (IPPSI). Chair of the Association. Representatives from both organizations Following this, Save the Children facilitated were key members of the Working Group the holding of the National Congress
30 PERMENSOS No.108/HUK/2009 on the Certification of Professional Social Workers and Social Welfare Officers (TKS; PERMENSOS No.107/HUK/2009 on the Accreditation of Social Welfare Organizations
Changing the Paradigm 95 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) for the Association of Professional Social next period were adopted (2012-2014) and Workers (IPSPI) that took place on the 19- a new chairperson from the University of 20th February 2010 in the campus of the Padjajaran was elected. The new plans include Islamic State University (UIN) in Ciputat, the piloting of the bachelor level curriculum South Jakarta. Over 160 social workers in selected universities. Agreement was from 14 Provinces attended and agreed on already reached on the development of a a new organizational structure, including core curriculum for specialist (advanced) the membership basis for the Association, a programs at Master and Doctorate levels. new program of work and new leadership. The new structure enabled the Association Work with IPSPI was also ongoing during that to start working more effectively as a period. In 2010 Save the Children supported professional body on behalf of its members, meetings of IPSPI during which it developed including fulfilling its role as part of the new and agreed upon a new strategic plan to certification and licensing body. Another guide its work for 2010-2013. It also started key result was the recognition of the same developing a range of National Standards to professional basis and requirements for both guide practice and in January 2011 National government and private social workers. Practice Standards with children were also adopted, together with a Code of Conduct Throughout 2010 and 2011 Save the Children for the profession. continued to provide technical support and facilitated meetings of the Working Group The Working Group on Social Work and the two National Associations to enable continued to support the development and them begin implementation during this initial establishment of the Certification Body period. In March 2010, IPPSI discussed (LSPS- Lembaga Sertifikasi Pekerja Sosial) in and agreed on core competencies for 2010 and 2011, including the procedures for social work education at degree/bachelor selecting its members and its operational level and on how to integrate these into a manual. In August 2011 the members of the national curriculum. Save the Children also certification (LSPS) and the accreditation supported discussions and workshops with bodies (BALKS) were appointed. In August regional social work networks to encourage 2011 an Indonesian Social Work Consortium sharing of technical expertise and resources. was established by stakeholders in the In June 2011 IPPSI had finalised the national reform process, including the Ministry of curriculum and was developing teaching Social Affairs, IPPSI, IPSPI and the National modules based on it. It also developed Association of Social Welfare Organizations and agreed on a common syllabus for field (DNIKS). The Consortium supports the practice in August 2011, ensuring all social ongoing reform process of the social work work graduates from the 35 Schools of system and provides a broader network to Social Work or Social Welfare in Indonesia continue to advocate for social work. It have basic requirements to fulfil through a involves both professional and para-social practicum program, which will form the workers in Indonesia, including students and basis of the practice requirements under the community level workers. Certification system. Key findings and learning In April 2012 Save the Children provided support to IPPSI to hold its National The adoption of the Regulation establishing Congress in Yogyakarta, which was attended a certification system recognised that there by over 70 participants from 19 Schools were certain core skills, competencies and of Social Work. A review was made of the knowledge that should be held by all social progress achieved in implementing the plans workers, as well as clear lines of accountability. It for the 2010-2012 period, new plans for the provided for the establishment of a certification
96 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) body and system, and set out clear criteria was to be an administrative formality and for social work education. It also established it did not provide any consequence if an a licensing system for certified professionals, organization did not comply. It also did not enabling them to apply to the Ministry of provide for a licensing system to ensure Social Affairs for a license to practice on the social service providers had to fulfil minimum basis of recommendation by the certification standards of services or lose their permission body. This would give social workers in both to operate. Instead, the law focused on private and government sectors the mandate establishing a voluntary accreditation system, to practice, ensuring they have the authority which enables service providers to receive and competency to act while holding them recognition for the quality of the services accountable. they provide, but imposes no penalties when they fail to do so. The Certification Body (LSPS) also brought together the key pillars of a social work In Indonesia the clients of social welfare services system - the professional association (IPSPI), have little choice in accessing services and even the educational association (IPPSI), and the less control over the quality of the services network of social welfare organizations they receive. An operational licensing system (DNIKS) together with the Ministry of that would ensure providers had the capacity, Social Affairs as the main government agency resources and skills to deliver services was responsible for the delivery of social services, needed. Nonetheless, Save the Children also including for children. In 2012 UNICEF was contributed to discussions on the drafting beginning work with the Ministry of Social of the Regulation on Accreditation of Social Affairs and Griffith University in Australia to Welfare Organizations, as it would have continue this process of development of a important implications for children services. comprehensive framework for social work in Indonesia. The regulation adopted at the end of 2009 (PERMENSOS No.107/HUK/2009) went Developing an effective regulatory system some way to close some of the gaps left by for social service providers was another the Social Welfare Law by expressly stating key component of Save the Children’s that accreditation would only be provided strategy, including through development to social service providers that had already of National Standards of Care for child met minimum standards of care. Yet it welfare organizations (see Section IV.1.B). could do little to ensure that would be the The drafting of the Ministerial regulation case without having a system to assess and on the Accreditation of Social Welfare measure compliance with the Minimum Organizations proved more challenging, Standards. The Regulation also established however, because Law No. 11 on Social an Accreditation Body (BALKS) comprising Welfare had not provided a sound basis for a number of different stakeholders in the such a system. It expressly stated that the provision of social welfare services. registration process for these organizations
Changing the Paradigm 97 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) B. Developing modules and training programs for child and family centred social work practice with children in need of care and protection (2009- 2011)
A skilled child protection workforce
Knowledge and data on child protection issues and good practices
Preventive and responsive services
What was done and why
While reforms of the framework for social social work practice with children and families work education and practice were being in relation to their care and care decisions, and sought, it was also vital to initiate a shift the relationship between care and protection. in what was being taught in social work Bearing in mind the relatively limited clinical schools. Through participation in research practice experience of those teaching social and advocacy on the situation of children work, the modules and training program in institutional care, several senior social should provide them with practical knowledge work practitioners and policy makers had and experience they could incorporate in recognised the need for change. These were their own teaching and curricula. the ‘champions’ of the reforms and many of them were educators and trainers in some of The approach taken the leading social work schools in Indonesia. In 2009, Save the Children’s team began the first Few of the schools of social work or faculties phase of a pilot process to develop modules taught social work clinical practice, let alone targeted at senior social work teachers and specialized practice with children and families. trainers, together with a practicum program. Only STKS in Bandung, Widuri in Jakarta and This work was conducted with support UNPAD in Bandung had clinical practice from Save the Children’s Child Protection components and those varied enormously Initiative (CPI), a global process led by Save in terms of the extent to which they the Children Sweden to ensure best practice explored interventions and approaches with learning and sharing in child protection. particular groups. Field practice (practicum) Eight leading schools/departments of social requirements were also extremely limited work were selected as partners, including except for STKS, and often entailed working the National School of Social Work - STKS, in a childcare institution. the University of Indonesia, UNPAD, Widuri, Muhammadiyah University, UIN State Islamic Social work education needed to ensure University in Jakarta and UIN Yogakarta, that children’s rights, child protection and and STPMD Yogyakarta, a Diploma level permanency planning were clearly understood college teaching community development. and made central to social work practice. The The Ministry of Social Affairs, in particular importance of families and family based care the Directorate for Children Services and to children’s development and the need for Research and Training body, was also a key safety, wellbeing and permanency in a child’s partner and participant. life needed to be reinforced. It was essential for Save the Children to work with key social Save the Children partnered for this work work schools and departments to strengthen with Building Professional Social Work in knowledge of and competencies in direct Developing Countries (BPSW), and the
98 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Director of its Indonesia program, Martha of Muhammadiyah, Atma Jaya, Padjajaran, Haffey, who had been teaching social work Widuri, and with the Hunter team, BPSW at both Master and Doctorate levels at the and Save the Children KEMENSOS advisers. University of Indonesia and Widuri School During the workshop the content, approach of Social Work. Professor Haffey not only and methodology to be used in the modules had a deep understanding of social work were discussed and agreed upon. development and practice in Indonesia, she was also the former head of the Clinical Five modules were developed as a result: Program at Hunter School of Social Work Module One: Principles of Child in New York. The team also partnered with Protection and Permanency Professors Gerald Mallon and Joan Morse Planning from the National Resource Centre for Module Two: Family Centred Assessments Permanency and Family Connections, also at Module Three: Family Centred Case Hunter School of Social Work in New York. Planning and Participatory Both were extremely experienced social Goal Planning work practitioners and educators and the Module Four: Developing Social Work Centre is specialised in providing training Skills in Family Engagement and technical assistance to government and Module Five: Ongoing Service Delivery to child welfare agencies in family-centred and Children, Youth and Families community based approaches with children, youth and families. The modules were accompanied by a series of case studies taken from real child protection As it was critical to develop modules and situations identified through the work of Save practices relevant to the Indonesian context the Children and the research on children the role of the Hunter team was to support in alternative care. In March-April 2010 the development of modules and the training intensive residential training was conducted process by working with senior Indonesian over two weeks with 20 senior social work social work professors. A small reference lecturers from the eight schools of social team was established to work on the work and social workers from the Ministry of development of the modules and a workshop Social Affairs. The training was conducted by was held in October 2009 with senior social a team combining international experts from work professors from STKS, the Universities Hunter and BPSW with national experts.
Trainers and participants of Permanency Planning and Child Protection training.
Changing the Paradigm 99 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) In addition to the training, there was a learning about the relationship between six week supervised practicum program theory of child development, child rights whereby each of the trainees was able to and child protection, and the reality of the work with one child (or more in the case social interventions and services provided in of siblings) in seven selected institutions, Indonesia, including the direct implications of with the families and relatives of the child, children’s institutionalization. and with the staff and management of the institutions. The trainees were to complete The trainees were encouraged to develop a minimum of 84 clinical hours during the follow up plans at both personal and process, although most completed more in institutional levels, including how they would order to conclude appropriately their work integrate the material, training and practicum with the child and his or her family. They had process and experience into their faculty’s to undertake comprehensive assessments of curriculum. Many have done so, either the individual situation of each child and family integrating all of the modules or some into and develop with them, and in consultation their teaching and their school’s curriculum. with the staff of the institutions, detailed care The first modules and trainings had provided options and plans. In many cases this was the the sound understanding of child protection first time these senior social workers had and care issues, and the strength based actual practical experience of working with approach to working with both clients children and their families. and service providers, needed for social Guidelines and protocols for the practicum work practice with children and families. and working with children, their families and Following this up with more advanced the institutions had also been developed for modules addressing specific interventions this purpose. A workshop was held in Bandung and skills needed to work with children and in April 2010 for the managers of the seven their families was essential. One identified institutions involved in the practicum and area of need was to build the skills of social for the supervisors to discuss and agree on work professionals to work with families to the aims of the practicum, approaches to be strengthen positive parenting practices by used, and collaboration between the trainees, parents and caregivers and prevent intra- management and staff of the institutions and familial violence. A new set of modules government social workers (Sakti Peksos) and training program were developed in located in the chosen institutions. This was late 2010, working in partnership with an the first time that a model for a supervised international expert on child development practicum process was developed and tested and good parenting from the University of in Indonesia. Previously there had been no Manitoba, Professor Joan Durrant. agreed practicum procedures or process and A similar process was used to the good no requirements for supervision. parenting and child protection process. Six The trainees worked intensively with 22 modules on child development and parenting children (13 girls and 9 boys) and finalised were developed: child and family assessments, as well as care Module One: Foundations, including and intervention plans developed with the identifying the target groups, children, their families and the institution. the ecology of caring for In May 2010 the trainees were gathered children and optimizing together with the training team for a three children’s development day workshop to present their work and Module Two: Parents, Children and learning. The workshop provided a forum Positive Discipline, including to discuss experiences and challenges concepts and approaches faced in the process. It also enabled shared relating to ‘good parenting’,
100 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) discipline and ‘positive the group members’ feedback. The modules discipline’ would provide fundamental information Module Three: Optimizing Developmental on child development and parenting, and Health: Prenatal facilitate participants’ own problem-solving development skills. The content would help participants Module Four: Optimizing Developmental to integrate macro- and micro-level factors Health: Infancy affecting parenting into their assessment and Module Five: Optimizing Developmental intervention plans. Health: Early Childhood Module Six: Optimizing Developmental At the Jakarta meeting, the consultant Health: Middle childhood and presented the content of the draft modules adolescence to the group over five days and engaged in continuous discussion of the content and In 2010, Joan E. Durrant, consultant from sequencing of the modules, and co-produced University of Manitoba was invited to a final outline which consultant would follow contribute a series of modules on Child in developing the training program. Development and Parenting to the Social Worker training program. The purpose Phase 2 of the consultancy with Save the Children Throughout the summer and early fall of 2010, Indonesia was to provide Social Workers the teaching materials were developed for with information that would help parents the modules. The focus was on the impact of understand how to support their children’s separation and trauma on child development, learning, and prevent parents’ use of physical and the micro and macro factors affecting and emotional punishment, by encouraging parenting capacity. Each module involved their use of positive discipline in very lecture, role-play, video, and problem-solving challenging circumstances. The process of exercises requiring participants to apply the development of the modules is as follow: information to cases typical of the families Phase 1 involved in the deinstitutionalization project. The teaching materials were sent to the The first phase of the process was a expert group, who provided feedback and conversation between the consultant, CP suggested revisions. Adviser and CPI representative for SEAP A full training was organized for December to have an orientation of the project and th th set out a plan for consultancy to it. It was 13 – 17 , 2010 in Bandung. All participants decided to develop a set of modules on child were requested to complete a pre-training development and parenting that would build assignment requiring them to become familiar social work competencies in strengthening with the living conditions of the parents with parenting skills. whom they would be working. The consultant then visited an institution for infants, children A face-to-face meeting was organized in and young people in Bandung to help her Jakarta in July 2010 with a selected group become more knowledgeable about the of senior social work academics and children’s experiences. The training was practitioners to ensure that the modules delivered over five days to 20 social work would be contextualized appropriately, and educators from the main schools of social that they would meet the needs of social work (STKS, University of Padjajaran, STISIP workers in Indonesia. Widuri, University of Indonesia, UIN Jakarta, UIN Yogyakarta, and STPMD Yogyakarta An outline of five modules for their review and staff from the Ministry of Social Affairs, was sent prior to the meeting. Initial including a number of previous participants in revisions to the outline were made based on the Child Protection and Permanency Planning
Changing the Paradigm 101 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) process. Case managers and caseworkers the participants to place the cases into the from the Pilot Child and Family Centre in ecological framework that underpinned the Bandung were also involved in the training modules on child development and parenting. and the practicum (see Section VI. 1). A staff member from another Save the Children The program participants then returned to program working to strengthen the role of their practicum placements to complete local community health clinics with mothers their assessments and intervention plans of babies and infants (FRESH -Future Resilience under the supervision of the expert group. and Stronger Households) also participated Through these processes the material and in the training and the practicum to ensure knowledge of positive parenting practices shared learning and development across in Indonesia and ways to support them is programs. also increasing. The consultant finalized the modules, integrating learning from the case Based on the learning during the Bandung conference, and submitted the teaching training including the information gathered materials to Save the Children for their use by participants through the pre-training in social worker training. assignment and the information obtained at the institution, the material and the cases for Key findings and learning the modules to reflect the realities of the The initial pilot had been devised with the parents’ and children’s lives and experiences National School of Social Work (STKS were engaged and enriched. Bandung) in mind, in recognition of the fact Phase 3 that participation by other schools of social work might be difficult as the focus of the From June to August 2011 the training teaching in those schools was primarily participants completed a practicum, each academic. As this work evolved in parallel working with one family whose child would to the work being done to reform the social be returning home from an institution. work system, it became clear that other Using information from the modules, they schools and faculties were interested in the assessed the families’ parenting contexts, modules and trainings. The process was skills and challenges. Their goal was to more opened more widely to support participation fully understand the practical dimensions of from eight leading schools of social work, supporting good parenting, to increase the as well as staff from the Ministry of Social effectiveness of their own teaching. They Affairs. also were developing their skills in integrating their knowledge of child development and Having a practicum program created a range parenting into their case management plans of technical and ethical challenges, in a context where professional and accountable services Mid-way through the practicum period, in July are not available and clients are vulnerable 18th – 20th 2011, a three day case conference to bad practices or even abandonment by was held in Yogyakarta. Each participant those who have legal responsibility for them. presented his or her case. The consultant Providing senior social work educators with facilitated the application of information an opportunity to put into practice the skills from the modules to understanding the key they had learnt by working with children and aspects of the case. Participants collaborated families was an essential step. At the same on identifying the parents’ and children’s time, the lack of previous experience and the strengths and challenges, information gaps, fact that virtually no casework was being done and potential intervention points at the macro created ethical issues around the practicum and micro levels. All cases were complex and program. Working with a child and his or required intensive discussion. The consultant her family for a limited period, without being identified some common themes and helped able to follow through was not acceptable.
102 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) On the other hand, the solutions identified The lack of integrated services ensuring through care and intervention plans would families can receive interventions that require much longer-term support, and that address their situation at multiple levels support was rarely available. resulted in the trainees having to use their skills to find solutions wherever they could. A partial solution identified during the first The complexity of some of the cases they practicum, which took place mostly with handled highlighted the fact that interventions children living in institutions, was to ‘partner’ to strengthen families’ care capacities would the trainee with a government social worker often require a range of resources and skills. (Sakti Peksos). The sakti peksos has been This reality could be overwhelming for some placed in the institution for a period of 2-3 of the social workers when so few services years as part of the KEMENSOS program or formal support systems for vulnerable to deliver Cash Assistance to vulnerable families are available. children (PKSA). Therefore one criterion used to select the institutions was that it Despite clear limitations and challenges, it had at least one social worker who would be was palpable during the workshops that willing to work directly with the trainee on followed the practicum program how affected the case, and who would take over the case the trainees were by their experiences, and plans and ensure implementation. how much learning they had gained. They had engaged with their clients, were able to This worked in some cases but not in others, demonstrate how they had used the tools depending very much on the quality and and techniques and, in some cases, the willingness of the sakti peksos. The sakti peksos impact of their approaches. It was clear that also had very little case handling experience for many it was the most direct experience and their position in the institutions was they had had of applying the skills they were weak, and in some cases unsustainable as teaching. the institution’s management did not want them there. In some cases the trainees had This bodes well for social work practice with to work alone as the sakti peksos showed no children and families in Indonesia. Many of interest, or they identified another member these senior individuals could have easily of staff in the institution to work with. In a rejected the challenges and remained in their few cases, the trainee undertook to continue comfort zones. That they engaged honestly following up the case even though the and actively with this learning process is to practicum was over, but that came with its their great merit. Sharing their experiences own set of challenges. with their peers during the practicum workshops and getting quality support One field practice challenge for the trainees through supervision was an essential part under the Good Parenting program was the of the process. As child and family centred dilemma they sometimes felt about working social work practice evolves in Indonesia, with parents or caregivers who were often it will be crucial to develop a positive and facing very difficult challenges, including effective supervision system at all levels chronic poverty and severely limited living to provide these social workers with the conditions. Social workers in Indonesia personal and professional support they need are used to providing material assistance to address such complex issues. and addressing inter-personal relationships dynamics, family functioning and psychological problems is rarely taught.
Changing the Paradigm 103 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) VI. Piloting child and family centred responses
One of the recommendations made to In practice many schools continue to charge the Indonesian government by the UN a range of fees, including ‘building fees’ and Committee on the Rights of the Child was examination fees, which can make the cost to reintegrate institutionalized children of education prohibitive. Other associated into their families whenever possible. The costs can also create formidable challenges research conducted in institutions had shown for children from poor and deprived that most children in them had parents and households, including transportation, the families. In most cases, these families had purchase of books and exercise sheets (LKS), neither abused nor abandoned the children school equipment, uniforms and shoes. There but they had certainly struggled to care are also other access issues affecting children for them, particularly ensuring their access from poorer households, especially in rural to education. Poverty, a lack of adequate and more isolated areas. Although there is social safety nets and limited access to social at least one elementary school in all villages services were clearly playing an important across Indonesia, there are only a handful of role in children’s institutionalization. junior high schools and even fewer senior high schools, and they are mostly located The reasons these families were unable to in towns/cities. This creates transportation access education in the first place were needs for children living in areas where less clear, however, particularly in light of distance and other physical challenges are comprehensive government strategies significant (such as mountains or a lack of adopted over the last decade to improve roads or bridges), often rendering these access to primary (Sekolah Dasar- SD) and schools inaccessible or requiring additional junior (Sekolah Menengah Pertama- SMP) boarding costs. levels of education. Through an amendment of the Indonesian Constitution and the 2003 Although lack of access to education is Law on National Education the government clearly one of the most visible push factors had made it mandatory for a minimum of for children’s institutionalization in Indonesia, 20 percent of the state budget to be spent research has also indicated that a range of on education. Education spending has social issues often compound economic more than doubled since 2000 and has now factors. A lack of adequate support reached over 20 percent of total national for caregivers,remarriage and paternal expenditure. abandonment, family violence, a lack of civil documentation and legal protection, child The introduction of a school grants program labour and exploitation, mental and physical in 2005 (Bantuan Operasional Sekolah- BOS) health issues are all important risk factors. to eliminate or at least reduce school fees Single parent households also often correlate should in theory have enabled most families with reduced incomes and care support, to access education for free or much as well as social isolation that can increase reduced costs. Between 2008 and 2009, the vulnerability in the face of crises, whether Government also introduced an Assistance natural or man-made. to Poor Students program, (Bantuan Siswa Miskin- BSM), a cash transfer program from The push and pull factors to children’s the Ministry of Education and the Ministry of institutionalization are therefore complex Religious Affairs targeting poor students who and diverse, and require responses that fulfil certain conditions regarding enrolment, address a range of needs for support by attendance and good behaviour in school. these children and their families. While BSM, however, only reaches two percent of all reintegrating children into families is possible children 6-18 years old (World Bank, 2012). when parents and other caregivers are willing
104 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) and able to provide care, it often cannot be project based, often at the mercy of donors’ done safely without support. In many cases, changing interests. As a result they are improving access to financial assistance or usually ad hoc and can only serve a relatively livelihood opportunities can achieve this. small population that fit the criteria of In others, psycho-social support to these the particular project. Beneficiaries are families will be needed. In some cases, it will narrowly identified as “trafficked children”, require delivering a mixture of financial and “street children” or “child prostitutes” and psycho-social interventions, depending on the complex reality of the range of issues the needs of each child and the situation of children and their families face is often not his or her family. recognised or cannot be responded to. The research also highlighted that available Many of the organizations providing these residential care services, either through services have done so without any support the childcare institutions or the Special from the authorities, and as a result some Protection Homes (RPSA), are unlikely have come to see the latter as a hindrance to provide effective or durable solutions rather than as a key source of support and to the issues faced by children with acute mandate. A few have collaborated with protection issues, or with alternative care national and local authorities, recognising the needs. Childcare institutions (Panti Asuhan) need for an integrated approach and their do not respond to the needs of these own limited capacity to replicate more widely children and at best offer a place to stay while a successful model. Although in some cases they can access education. The RPSAs can that collaboration has been fruitful, in others provide a temporary safe place for the child, the authorities have seemed only too happy and in some cases ‘treatment’ to respond to to have others take on the responsibility for concerns about the child’s immediate mental them. well-being. These institutions, however, have no capacity to address core protection issues Aside from its focus on supporting residential where they are located, to ensure children’s based services for vulnerable children, the safe reintegration into their families, or the Ministry of Social Affairs has not developed provision of alternative family care. any model of child and family centred services at the community level. Attempts at initiating In some areas of the country, NGOs and more community level support activities community-based organizations have (see for example the General Guidelines for developed services to address the needs the provision of services to children outside of of groups of vulnerable children at the institutions 2004) had begun but continued community level. Innovative programs to be seen and implemented as an additional have been introduced to respond to the function of the institutions, rather than as plight of street children, domestic child an alternative approach to social services workers and children involved in other delivery. The Ministry has not worked with forms of child labour, as well as trafficked district governments to establish mechanisms children, including women and girls involved for local social services provision to at-risk in commercial sexual exploitation. In a populations, either through public services or few cases, organizations like Aisyiyah have through contracting private organizations to developed family support interventions at deliver them. It has not assigned responsibility the community level, involving small and for making crucial care decisions in relation short-term financial assistance combined to children deprived of parental care, nor for with psycho-social support to families in responding to the safety needs of children crisis. being abused, neglected or exploited. It has not developed comprehensive strategies to Although these initiatives are important strengthen families’ ability to care for their they have tended to be small scale and
Changing the Paradigm 105 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) children through a range of interventions at only coordinate with the local social the community level. authorities where they are based but report directly to, and are hired and fired by, the The Ministry of Women’s Empowerment Ministry at national level. They are not part has promoted the establishment of local of local government and as a result do not networks at provincial and district levels to contribute to strengthen the capacity of the coordinate services for women and children local government to deliver or manage these victims of violence (Pusat Pelayanan Terpadu services long-term. Pemberdayaan Perempuan dan Anak- P2TP2A), but these operate mostly to support better Compounding this problem, most local sharing of information between government social authorities are unable to recruit the and local service providers. They do so social workers and other personnel they without establishing any mechanism through need to fulfil their responsibilities, including which a package of appropriate social welfare overseeing the delivery of social services in services can be made available and delivered their areas. In many cases, no specific social to vulnerable populations to prevent, as well authority is assigned with this responsibility as address, the range of risk factors they face. at the district level, and social welfare is part of a broader mandate held by an Of all social services, systems to meet the office addressing a range of religious, social needs of families rendered vulnerable by and economic issues, without the staff or chronic poverty, social exclusion, violence, structures to address the needs of vulnerable human and natural disasters are the weakest members of the community. at the local government level. At a time where mechanisms to oversee and manage This situation is particularly problematic for the delivery of health and education services children facing acute care and protection risks, at local government level had seen some as it means that local authorities are generally big improvements, very little focus and not in a position to take responsibility for investment was being placed on developing the decisions that need to be made to the structures, resources and skills needed ensure their safety and well-being. They also to deliver psycho-social and financial support do not have the resources and mechanisms to the most vulnerable members of society. to ensure that responses for these children Almost all of the national social protection are provided and are appropriate. Although programs to address the impact of chronic this situation has improved in districts and poverty have had to establish parallel municipalities where coordination networks infrastructures and mechanisms at the have been established, the provision of national level to deliver these programs at services to these children still depends on the local level, often with limited integration the availability and the goodwill of local into the local government systems, budgets NGOs and childcare institutions. and structures. In most cases, the local social affairs office The Ministry of Social Affairs, for example, simply ‘passes on’ the case to one of these under its Cash Transfer programs to agencies and there is no further government vulnerable groups (PKSA), relies on about responsibility for that child’s well-being. 600 newly graduated social workers (Sakti Where local NGOs do not have services that Peksos) that it has hired directly and placed in address the specific needs of a child, these childcare institutions and non-governmental needs will go unmet. As a result, responses organizations at local level to support the to the situations faced by these children delivery of this program. Until recently, will tend to be one dimensional and time most local social authorities had no say in limited. Many child protection issues involve the placement of these Sakti Peksos or their people living in different districts, sometimes activities. Even now, these social workers provinces, yet service providers will rarely
106 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) have the capacity or the mandate to work in government programs and channelling these different locations to ensure services funding, the social authorities at district level are delivered not just to the child but also to are rarely in a position to do this, and they are the family and the community. often unaware that this is their responsibility. Decisions about children’s safety and The lack of models for non-residential services placement in alternative care, whether directed at families, and of mechanisms temporary or longer-term, entail a transfer at the local level to ensure services and of parental responsibility to an individual, mandates could be implemented safely and a family or an institution, and have legal effectively, posed a challenge to reintegrating implications that necessitate responsibility- children safely within their families, let taking. Under Indonesian law the government alone working to prevent children being and its local representative, the local social institutionalised in the first place. It was authority, is responsible for the protection therefore imperative not only to challenge of these children and it must have in place the paradigm of residential care as the the structures, mechanisms and mandates to primary child protection response, but also enable it to fulfil this role. to test and develop new models that could show how child and family centred social Whether it runs the services provided to interventions could be delivered at the local these children or contracts the services to a level. These models needed to strengthen properly accredited local service provider, it the capacity of the local authorities to continues to be responsible for ensuring the fulfil their responsibilities towards children children receive appropriate and effective facing care and protection issues. They care and protection responses. This means also needed to develop sound, accountable having the staff, budgets and mechanisms partnerships with local service providers to at the local social affairs office that can ensure a continuum of appropriate services supervise responses, ensure decisions are is available at the community level, based on taken, and that overall responsibility for the actual assessment of needs conducted with well-being of that child is maintained. With the child and his/her family. their primary focus on overseeing central
Changing the Paradigm 107 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) A. Bandung Centre for Child and Family Support (PDAK) (2010- ongoing)
Preventive and responsive services
A skilled child protection workforce
Knowledge and data on child protection issues and good practices
Effective regulation, minimum standards, and oversight
Children’s voices and participation
What was done and why The policy work conducted to shift the prevention (working with at risk groups to paradigm of child welfare services and the address risk factors in order to prevent harm). skills developed through the research and The pilot enabled a team of professional the trainings on social work practice with social workers to test interventions and children and families had established the to learn and demonstrate how multi- political will as well as the skills needed to service responses can work by ensuring begin testing alternative non-residential case planning, referral and follow up in models of interventions. these individual cases under a continuous In 2010 the Save the Children team initiated mandate and, if needed, across districts and a new pilot project in partnership with provinces. It also sought to develop best KEMENSOS and the social affairs authorities practice procedures and protocols for case at the provincial level in West Java and in management and casework, including referral Bandung Municipality. The Child and Family practices between responsible agencies, Support Centre in Bandung (Pusat Dukungan professional practice and responsibility Anak dan Keluarga- PDAK) was a first step taking. These procedures were tested and in testing and building a mechanism to reviewed according to the needs of ongoing enable the local authority to play its role in cases, in turn providing a basis for practice relation to children who face acute care and based knowledge and expertise in child protection issues. It sought to demonstrate protection responses that could be shared how professional child protection interventions and used by other agencies. in individual cases could occur outside The Centre also provided a training space a residential care setting, using a case in case management and social work management approach. interventions for educators, new graduates The Centre responded primarily to care and students of social work. It built on the or protection issues that had already been work conducted through the modules and identified or brought to the attention of the field practice program by providing a more local government, local service providers or permanent opportunity for supervised field local community members. In that sense, this practice and the application of skills learnt model was focused on remedial interventions through the trainings. rather than primary prevention, although While the Bandung Centre is client focused it also played an important role in tertiary and provides a mechanism for formal prevention (preventing the recurrence of harm responses to acute care and protection or a concern) and to some extent secondary
108 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) needs through a case management system, stand alone as a project. PDAK would need a different model of a community support to be overseen the social authorities but with centre for families was also planned, this time overall supervision from the Ministry. This in a rural context. The model would be tested would reinforce the mandate of the teams in Yogyakarta, Central Java, and would provide intervening in cases and encourage social more preventive services for children and authorities to work together. families in need of support, without the need for referral or for a specific child protection KEMENOS would provide overall supervision issue to have been identified. It is to be a and guidance, supporting coordination with walk-in centre run by community members other relevant agencies at the national level that can make use of existing resources at and outside the province. The provincial that level but also link families to resources Office of Social Affairs would ensure technical and programs at other levels. It can provide supervision but also support to district information, care support or relief, peer social authorities, ensuring cooperation group support, training and other forms of when needed across districts, providing support identified by the community. Work mandates and operational support, and on this model had just begun in 2012. assigning relevant staff to work as part of the PDAK team. The City Office of Social Affairs would have direct supervisory authority for The approach taken PDAK, would establish a Coordination Team In 2010 the Save the Children team began to work directly with the Centre to ensure comprehensive consultations with the effective referral and responses to cases, Directorate of Social Assistance and and would provide both the mandates and Rehabilitation Services in KEMENSOS and resources needed to fulfil its responsibilities. the Offices of Social Affairs at both provincial At the beginning of 2011, following discussions (West Java) and municipality level (Bandung and a recommendation by the Governor of City). Discussions took place with senior West Java province to the Office of Social social workers that had been involved in Affairs that PDAK be established, a formal the development of social work modules agreement was signed between KEMENSOS, and training. STKS was to act as a source the West Java Provincial Office of Social of technical support and advice, while the Affairs and Save the Children (27/RS-KSA/ Centre would provide a forum for practicum KEP/2011). The MOU emphasizes the role of and social work skills development for the Centre as part of the implementation of its graduates and lecturers. The Bandung children’s rights and of the provincial Midterm Forum of Social Welfare Institutions (Forum Plans for West Java province (RPJMD). It sets Komunikasi Panti Sosial - FKPS), a network out roles and responsibilities in relation to including all childcare institutions in Bandung PDAK and mechanisms for supervision and that had been a key partner from the Quality reporting on progress. of Care research to the piloting of the National Standards of Care, was also involved Although the formal MOU was not signed as a major partner for this new pilot. until early 2011, the Centre was established and began working in August 2010. A team of The aim was to ensure that the Centre in 13 social workers was recruited, comprising a Bandung would be an opportunity for key Case Manager and three senior caseworkers, partners and stakeholders to continue the each supervising three other caseworkers. The learning and development of good practices head of the clinical programme at STKS and in relation to child protection approaches and lead researcher in the Quality of Care research, interventions. As such, it would need to be Kanya Eka Santi, was recruited was recruited integrated as much as possible within the plans as technical adviser to provide direction and and systems of these stakeholders, rather than supervision on intervention approaches and
Changing the Paradigm 109 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) to support the development of tools and • The West Java Islamic Donations Centre protocols to be followed in case management. (Rumah Zakat Regional Jawa Barat) that A database officer was recruited to develop manages and delivers financial assistance and manage the case management database to vulnerable members of the community and work with caseworkers to ensure proper using religious donations by Muslim data is entered and confidentially maintained. communities The Centre was provided office space by the • Save the Children West Java social authorities and staff from Dinas Sosial at district and provincial level, The team in PDAK established a case including senior officials in charge of services management system prioritizing referrals for vulnerable children. from three sources in the initial stage: In 2011, the Mayor of the City of Bandung 1) Social Affairs authorities established a Coordination Team to work 2) The local forum of child welfare institutions with PDAK (463/KEP.957-Dinsos/2011). It (FKPS) provides overall policy guidance to PDAK 3) Save the Children’s EXCEED program, a but also acts as a referral network, bringing separate child protection program funded together various stakeholders to support the by USDOL that works to rescue and provision of responses to children and their reintegrate children who are trafficked families. Head of this team is the Deputy and involved in exploitative child labour. for Economic Affairs and Development The decision to focus on cases referred by Administration of Bandung Municipality and these agencies was to ensure PDAK would supported by the Head of Social Affair Office develop systematic ways of working with as vice chairman). The members include: agencies operating at different levels. Working • The City’s Social Affairs department as the with Dinas Sosial would strengthen the role of leading sector and responses by mandated local authorities • The department of Education and enable the development of mechanisms • The department of Health for them to fulfil their responsibility for • The Civil Registry department children’s care and protection. By establishing • The Department ofWomen’s Empowerment a direct response mechanism with the FKPS, and Family Planning (BPPKB) PDAK ensured comprehensive assessments • The Centre for the Empowerment of of the needs of children placed or due to Women and Children set up to coordinate be placed in institutions where care and responses to victims of violence protection issues have arisen. • The provincial Child Protection Network This also means it can support the piloting (LPA) of the National Standards of Care and the • The Forum of Social Welfare Institutions Deinstitutionalization pilot (see sections (FKPS) in Bandung IV.1B and VI.2). It supports children’s safe • The Child Rights Advocacy Organization reintegration into their families by conducting (LAHA), a Bandung based NGO providing comprehensive assessments of the needs of legal aid in child protection cases, including the children and their families, and providing children in conflict with the law follow up in those cases. Working with • The Independent Network of Volunteers EXCEED also enables the PDAK team to (JARI), a local NGO providing legal and psycho- provide technical support in responding to social assistance to victims of violence the complex protection issues faced by the • A provincial level network focused children it serves, including by working with on providing economic support and EXCEED’s local partners. EXCEED also empowerment to poor Muslim families provides important financial support to PDAK. (Pos Keadilan Peduli Umat)
110 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) In some instances cases are received from the structures and mechanisms they will other agencies or identified by the PDAK need longer term. team. An assessment of the severity of risk factors forms the basis of deciding whether In addition to the case management work, the team should intervene. All decisions are the PDAK team conducts family tracing; taken in consultation with the local office of provides psycho-education and counselling, Social Affairs, but whenever an issue or case conflict resolution and parenting skills; requires a decision or the direct involvement supports children and families to obtain civil of the social authorities the PDAK team will documentation including birth certificates; attempt to involve them. intervenes to assess and address violence and safety issues; provides support and Case management procedures were accompanies child victims of violence developed, and agreement reached on the through court processes; and supports referral protocol and coordination. A formal access to a range of financial assistance and referral form is now in use in each case, livelihood opportunities through its partner providing key information about the reasons agencies in the referral system. This has for and purpose of the referral, background included scholarships, vocational training or information on the child and interventions livelihood building opportunities, medical and or services already provided and by whom, legal services, cash assistance through the and the name of the caseworker and government PKSA, mental health services, and senior caseworker responsible for the the provision of temporary shelter services. case. The referral form is to be signed by all parties, constituting agreement and Building on the skills gained through the Good acknowledgement of responsibility by Parenting training program (see SectionV.2), each party. The case management process the PDAK team also provided a two day generally follows the steps outlined below: training in Good Parenting to 20 parents and caregivers, enabling them to learn about child The team conducts comprehensive development, the importance and role of assessments of the child and his/her family care and attachment, and positive discipline situation, including the extended family skills. The program received a very positive and other significant individuals as well as response from the parents. community resources. It develops plans of actions involving both the child and the family, As of June 2012 PDAK had conducted case ensuring the participation of other actors management interventions with 159 children who may be vital to their implementation and provided family support services to almost including teachers and schools, health 235 children and their families. It had been able personnel, social authorities, religious leaders to conclude services for 31 cases (20 girls and and the management and staff of institutions. 11 boys) and had 82 active cases (42 girls and It facilitates access to services through a 40 boys), including 12 at initial assessment stage referral network of service providers, or in and 70 cases where services and monitoring some cases providing the services directly. are ongoing. The cases referred by institutions It follows the child and the family until it is related to children being considered for clearly agreed by all sides that services are no placement where issues beyond access to longer needed, and it monitors afterwards to education have been identified, or children ensure no repetition of the problem occurs. already placed in the institutions but facing It actively works with local officials in the difficulty that the institution does not feel able to Social Affairs Office, supporting them to take handle. Institutions had referred a majority of responsibility under their mandate, identifying cases, highlighting the fact that these institutions issues and responses that are needed from are often the first contact point for families or them, and building their capacity to establish organizations coming across child protection issues.
Changing the Paradigm 111 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Lina, 14-year-old girl
The case of Lina was referred to PDAK words, “Mama, help Lina, father is doing by LAHA, a local NGO providing legal aid things…” But her stepfather soon caught in cases involving child protection issues. her and dragged her back to the house Lina was 13 at the time and six months where he raped her. When her mother pregnant as a result of being raped by her called her he threw the phone out. She stepfather. arrived home not long after the violence had taken place but when she asked her Lina’s mother stated she did not know husband he said nothing had happened and about the sexual violence until she started Lina said the same. to suspect that Lina was pregnant. Lina’s mother had confronted her husband, who Her mother continued to ask until Lina first denied it but finally admitted to raping finally admitted that he had forced her Lina, although ‘only one time’. She reported to have sex. Lina’s mother bought a him to the police and he was arrested. Due to pregnancy kit and the test revealed that the pregnancy Lina was pulled out of school Lina was pregnant. Her mother reported and the family moved. Her psychological the case to the police immediately and condition was worrying. Her mother Lina was sent to stay at her grandmother’s reported that she had been a talkative and to avoid questions by the neighbours. The happy child but now she was quiet and stepfather continued to threaten Lina and sullen and she would rarely eat despite her now also her mother. He threatened to condition. She was clearly stressed and did kill her and her children once he got out not want to talk. of jail and also that he would not provide for them. As the team began to work with Lina it became clear that the sexual violence When the PDAK team began working with had begun when she was in elementary Lina she was experiencing a lot of stress, school and prepubescent. Her stepfather had difficulty sleeping and would remember was often alone with her in the house the violence she had experienced at the and would hit her and threaten that if she hands of her stepfather, and also the did not comply or tried to tell anyone he physical and verbal violence against her would leave the family behind, not pay for mother. She would not talk about it but their education and take her cell phone would often send a text message to her away. Although her mother said she did mother while she was at work. Usually the not suspect the sexual violence until the message only contained the word “mama”. pregnancy, in May 2011 Lina’s brother, who When her mother called her, however, she slept in the same room as her, reported the would refuse to talk. Once a relationship stepfather entering the bedroom at night was established with the caseworker Lina and touching Lina’s private parts. When was able to share her fears about the pain Lina’s mother confronted the stepfather of giving birth and about testifying in the he hit both her and her son. legal case. She was able to talk about what would happen after she gave birth and she In September 2011 her mother discovered stated that she wanted the child to be the pregnancy. Lina had come home from given up for adoption. school and her stepfather immediately forced her to undress and serve him Lina was also bored as her social world sexually. Lina tried to run away and had shrunk significantly after she was managed to do so long enough to send pulled out of school and her mother and a text message to her mother with the grandmothers, who were afraid of gossip,
112 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) often kept her inside the house. She This was a stressful period for both Lina had been placed briefly in a church-run and her mother, with frequent tensions institution in Jakarta for young women and and conflict between them. After an initial girls pregnant as a result of sexual violence, period when she was happy to participate but she had been unhappy there and had in the care of her baby, Lina grew impatient asked to go back to Bandung to be close with the restrictions on her life imposed by to her family. this situation. She began to direct her anger at the baby, who increasingly reminded her The team began working with Lina and of the sexual violence she had experienced. her family, providing psychological support, Her mother frequently found fault with facilitating discussions about care options Lina and could be quick to criticize and for Lina’s baby, and providing material often angry with her. During that period, support. A major focus has been supporting the team provided intensive monitoring a better relationship and communication and psycho-social support through between Lina and her mother. Lina and her regular visits and meetings. The team also brothers had spent their early years in the supported Lina to see a psychologist, after care of their grandmother and other family she expressed an interest, to process more members while their mother was domestic intensively her traumatic experiences and worker in Malaysia. their impact. In 2007 she had come back and met and In addition to material support to address married Lina’s stepfather against the wishes immediate needs for the care of the baby, of her children. Although there was clearly the team has worked with Lina to support a lot of love and care between Lina and her her decision to go back to school. Lina mother, tensions and mistrust remained was enrolled in a special course to enable and relations between Lina’s mother and her to catch up with her studies, which her older son were also strained. she quickly completed. Returning to her The team facilitated discussions and planning education proved an important step for for the future, helping Lina think through Lina and she is clearly excited about it. what she wanted to do and what the Although the relationship between Lina options, challenges and possible solutions and her mother remains strained at times, were. After Lina gave birth to a little girl in both are working hard at finding ways of February 2011 she began bonding with her getting along. and her mother decided not to give the baby The financial stress of taking care of the up for adoption. Lina’s grandmother did baby has taken its toll on Lina’s mother, not accept this so Lina’s mother decided to however, and the team is currently working take the baby to stay with her at the house with members of the network to support where she was employed as a housekeeper. the family’s access to scholarships and Lina would stay with her older brother in a financial assistance. Meanwhile, the legal house she had rented for them and would case is still ongoing and LAHA is continuing visit the baby daily for breastfeeding. to provide assistance with this.
Key findings and learning Most of the cases referred to and handled by well-being concerns. In line with PDAK’s the PDAK team can be categorised as acute mandate, these cases generally entail a range or needing formal and timely responses of decisions and interventions by a number to address major safety, permanency and of actors and service providers. Many of the
Changing the Paradigm 113 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) cases relate to violence against children, in raises issues of legal responsibility that are particular sexual violence committed by a still not clearly defined. However, the pilot father or stepfather, or even by the head of is addressing those challenges and identifying an institution. Some also concern violence practical ways of resolving them. against women and its pervasive impact on both the mother and her children. As it brings together all the agencies with responsibility for children’s safety and Most cases highlight the complex relationship wellbeing it can start to sort out what this between intra-familial violence and children’s means, including who is responsible, what care needs, and the importance of responses decisions have to be made and by whom and that can effectively address both at the same what interventions are likely to be effective time. A number of cases relate to children’s and appropriate. Until this happens, it will unclear care status, with children being left continue to operate in a system filled with behind by parents going abroad in search of grey areas and a lack of accountability. This work, and the lack of an effective system to is not an ideal way to address difficult issues make the decisions needed to provide the relating to children’s safety and care, and it child with a stable and secure environment. puts considerable pressure on often relatively Some cases highlight the disastrous impact inexperienced social workers. Although of discrimination and stigmatisation, either as supervision by more senior caseworkers is a result of sexual orientation or HIV/AIDS a key part of the system under PDAK, young status, including teenagers who are rejected social workers still have to make sensitive by their families and communities and are decisions and manage difficult relationships often pushed into unsafe behaviours and on a day-to-day basis, often without the situations as a result. benefit of recognised practices or clear demarcations of responsibility. In some cases, law enforcement authorities are involved and legal proceedings are ongoing The PDAK pilot is also testing a new but in most cases the violence, abuse and relationship between service providers and exploitation are kept under wraps within the legal authorities, one based on accountability family or the community, unless it also violates and formal processes. Service providers that some key social norm, such as pregnancy have previously operated within an almost outside marriage. One of the challenges for entirely unregulated system now have to the PDAK team is that legal interventions to answer questions about their services. They address violence against children continue have to recognise that they are not alone in to be weak or inappropriate. Resistance bearing responsibility for deciding the fate to seeing violence in the family as a crime of a child placed in their institution. This is rather than a private matter is obviously proving challenging not only for them but problematic, but recourse to the legal system also for the team and partners seeking to is often not an option for vulnerable children establish more accountable ways of working. and families and in some cases creates its In some cases the PDAK team found that it own safety and protection issues. was treading on sensitive vested interests, including with some important partners. The team has supported children’s involvement in legal proceedings but has Among other things, the team has uncovered also responded in cases where the legal sexual violence perpetrated by the manager authorities are not involved when they should of an institution that is part of the network be, or are responding inadequately. Bearing of one of its partner institutions and has in the mind PDAK’s objective to support the supported the children through legal implementation of laws to protect children’s proceedings against the perpetrator. It has rights, this can be a difficult balancing act. It questioned the practice of some heads of
114 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) institutions deciding which babies should and para-social workers to take appropriate go to which families, and has started to decisions, assign legal mandates and authority, insist on more appropriate procedures and and ensure the quality of services delivered assessment for foster care and adoption to these children and their families. placements. This can only happen through the development The lack of clear systems of legal responsibility of new structures and ways of working in the and recognised mandates for social workers social affairs offices, focused on fulfilling their has meant that the team continuously legal responsibilities and mandates towards negotiates access, mediates conflicts, children and families at risk. This is the next overcomes distrust and appeases those used step in the work of PDAK that was already to making decisions on their own or away ongoing by the middle of 2012. The team is from scrutiny. In some cases it has not been working with social affairs authorities and able to do so, even with the power of the key local social service providers to review local authorities behind it. Local government the existing structures, budgets and human officials have also found it hard to play a more resources available in those offices to identify proactive and regulatory role and the team whether they are sufficient and suitable to has had to get them on board, highlight their fulfilling their mandates towards vulnerable mandates and responsibilities, support their children and families. It is facilitating taking action and ensure they are in a position discussions on the mechanisms required to carry out important follow-up. Some local to move from more effective coordination officials from the Social Affairs offices at both between actors to ensuring effective services district and provincial levels have more than and interventions are in place to respond to risen to the occasion while others have not. child care and protection concerns. One of the aims of the PDAK pilot is to This process can deliver important develop more effective and accountable ways learning and possibly even a model for the to make critical decisions about children’s establishment of a child protection system safety and care by those who have the legal at the local level that links up to a national responsibility to do so. This will entail the system of child protection, with the clear establishment of structures, mandates and mandates, mechanisms and resources competent staff within the local social affairs needed to fulfil children’s right to care and office who can work with social workers protection.
Dewi, 16 year old girl
Dewi is the second of four children. She a time. He now runs a shop in Bandung. currently lives with her maternal aunt and One night a week earlier, Dewi’s father is not in school. She dropped out of Junior reported to Siti that Dewi was not in her High School just before graduating the room, although it was already very late. previous year, after missing many days and They did not know where she was and she often running away from home. A member had a history of running away. Dewi finally of the community referred Dewi’s case to came home the next day after her father PDAK in February 2012 on behalf of her had gone to work. She was accompanied mother, Siti. The team met with Siti at the by a friend of hers, well-known and liked aunt’s home shortly after. by the family. As Dewi was changing in her room, her friend explained to Dewi’s Dewi’s father used to work as a ship’s mother that Dewi had shared with her officer and was often at sea for months at that her father often came into her room
Changing the Paradigm 115 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) at night and touched her inappropriately. The PDAK team began working with Siti immediately asked her daughter, who Dewi and her family, focusing first of all confirmed it and then told her mother all on safety issues. By the time the matter that had happened. had been reported to them, Dewi’s father had already become suspicious of his Beginning in December 2011 (two and a daughter not staying with them and kept half months earlier) her father had started trying to pick her up from her aunt’s and to come to her room at night while she asking questions about her being there. was sleeping. She would wake up and Placing her in a location where he would realize that he had unfastened her clothes not be able to threaten her was crucial, and lowered her panties. He also kissed but she also needed her family’s support. her on the lips and when she protested, Case conferencing began with the key he said he was only trying to rub some oil stakeholders to decide on a way forward, on her because she had not been feeling and temporary shelter was provided for well. This occurred almost every night. At Dewi for a few days while her father was the end of January she had found herself confronted with the accusation. The team alone with him one day in the shop and worked with Dewi at that time to develop he had grabbed her tight and touched her a full history of her life and experiences in ways that made her feel very scared and identify what she would like to see and uncomfortable. She tried to run but happen. he stopped her. He later apologized and asked her not to say anything to anyone. A full assessment of the family and of the risk and protective factors was conducted, After hearing this, Siti asked Dewi to move involving Dewi, Siti and other key members in immediately with her aunt and her family, of the family, although not her father at that who lived in another part of town. Dewi stage for safety reasons. The assessment was very close to that aunt and had often revealed that in addition to the more recent stayed with her since she was small so she allegations of sexual assault, Dewi’s father felt comfortable there. Siti was distraught had always treated her differently. He often and did not know what to believe. She belittled her and spoke of her as being a wanted to confront her husband about liar and untrustworthy in front of others. it, but was worried about his reaction. He had always harboured suspicions that She knew he could get angry quickly and she was not his child as he had often been he had been violent towards her in the at sea at the time she was conceived, and past. She talked about reporting him to would suggest that ‘losing her’ would not be the authorities and divorcing him but such a terrible thing. Dewi felt scared and she was also worried about the financial very uncomfortable in his presence. After a implications. She did not work and her while her older sister who lived with them husband’s income was the only source but was married also began to admit that of support for both her and her children. she sometimes did not feel at ease in his She worried about what would happen if presence, and that he often looked at her in he were to be prosecuted. He would get a sexual manner, although according to her very angry and would certainly refuse to he had never attempted to touch her. support his children. As a result she felt the only way out would be to resolve this The team worked with a partner agency informally through the family, but she did in the referral network to provide Siti with not know how to proceed or even have legal advice. The legal situation was complex. that conversation with him. She asked for An individual complaint would need to be help to look for a solution. made to the police for an investigation into
116 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) the sexual assault. The lawyers advised Siti While the case is ongoing, a formal agreement that the proceedings would be lengthy and was developed and reached with Dewi’s costly and the outcome by no means certain. father. In it he undertook not to approach Dewi’s father is known as a religious man and her or contact her, as she had demanded. He many members of his family find it hard to gave his formal consent for her care to be believe he could do such a thing. The only temporarily transferred to her aunt and her evidence would be the word of his 16-year- family, although he would continue to bear old daughter, and the judicial system in financial responsibility. Meanwhile the team Indonesia is far from being child friendly. The is also working with Siti, who has decided she family wanted him stopped but did not want wants to proceed with a divorce, to identify the case brought to court. On the other possible livelihood options for her. Support hand, safety concerns for Dewi, and for her for Dewi to finish junior high school has been siblings and mother, should be addressed and provided so that she can enter senior high the seriousness of the allegations required school and finish her education. The team is the involvement of the authorities. also continuing to work with her to address the emotional and psychological impact of her With the support of PDAK team members, experiences. Siti confronted her husband about the allegations. Although he admitted that what The team has also undertaken a Dewi reported had happened, he suggested comprehensive assessment of Dewi’s father that he had only done this once and it and his own personal history, including was to ‘test her’, as he suspected that she through meetings with him and other was a ‘loose girl’ who was already sleeping close members of his family. Initial findings with boys. During family conferencing he indicate a childhood history of sexual recognized that what he had done was violence by his father towards his mother, wrong but also proceeded to partially put and possibly towards him. Discussions the blame on his wife by suggesting that about safety issues in relation to continuing it had happened because she refused to contact with his other children are ongoing. satisfy him sexually. The team is also looking at services that could be provided to him to enable him to address the issues at the core of his behaviour.
Changing the Paradigm 117 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) B. Preventing Separation and Reintegrating Children into Families: Piloting deinstitutionalization in Indonesia (2010- ongoing)
Preventive and responsive services
Meaningful coordination across government and between sectors at different levels
A skilled child protection workforce
Knowledge and data on child protection issues and good practices
Children’s voices and participation
What was done and why
In 2010 Save the Children began to focus care solutions, and the social work system and more on developing and testing non- skilled workforce needed to support children residential models of interventions with in their families or alternative care families children and families. It had initiated a Pilot was only starting to be set up. Changing laws Child and Family Support Centre in Bandung and policies and shifting the BBM subsidy and to respond to acute care and protection other financial assistance towards families needs, was disseminating the newly drafted were crucial first steps towards a paradigm National Standards of Care, and was in shift but the central government was not in the process of strengthening the basis for a position to direct and manage a massive alternative family based care options in laws process of transformation of childcare and policies. institutions. It needed next to develop and test The Quality of Care process and the mechanisms to support the reintegration of comprehensive and participatory processes institutionalised children into their families. used to develop National Standards of Care The National Standards of Care provided had built momentum for change and the a clear policy framework for this but political will needed among key stakeholders, implementing it was going to be challenging. including major service providers. Heads of The children in those institutions faced very institutions and local and national networks different family situations and contexts: most of institutions were engaging in this process were facing issues of access to education; and recognised that this was not just a others were facing a mixture of economic challenge but also an opportunity for them. and psycho-social issues; and a smaller group Working with these key leaders to test of children were in need of alternative care and ‘operationalize’ the new paradigm was and/or protection. Officials and communities essential to its successful implementation. had also come to rely on institutions as ‘the Save the Children started consultations solution’ and, more often than not, there were on developing and testing a model for de- no other services provided at the local level. institutionalization in Indonesia in 2010 and into 2011. With support from the Open Indonesia was highly decentralised, the Society Institute (OSI - now Open Society child welfare system was unregulated, the Foundation), it proposed and agreed on a government was only beginning to shift the pilot project with three institutions, to work priority it had previously given to residential with them over a period of five years.
118 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The Pilot would test and provide important Developing the ‘know-how’ of learning on effective mechanisms and deinstitutionalization is part of the overall interventions to achieve three key objectives: effort to put the government of Indonesia’s newly adopted family-based care policies 1) The reintegration of children and/or into practical effect. It would entail working placement into alternative family-based with local social authorities to ensure care; alternative family based care options were 2) The provision of family support available for children who may need them. interventions to ensure appropriate Local government has to start promoting reintegration and prevent re-entry into those options, recruiting potential foster and institutional care; adoptive families, establishing mechanisms to 3) The transformation of institutions and work with the managers of institutions and redirection of their roles and systems qualified social workers to link children in towards more child and family centred need of alternative care with families able to services. provide that care. Through the pilot selected institutions would Oversight for children’s placement in be supported to develop and implement a alternative care and for the services they process of deinstitutionalization involving the receive are part of the responsibilities of reintegration of children into their families local social authorities, and these duty or placement in suitable alternative family bearers need to work with service providers based care through adoption or fostering; and communities to ensure mechanisms are a transformation of services provided by in place to enable them to do so. Together the institution, including the establishment with the ongoing process of regulating of clear gate keeping mechanisms; and institutional care and strengthening the establishing outreach support services to social work profession, this model would children in their families. This initiative would potentially facilitate the transition of shed light on the challenges of children’s children’s services from residential to family- reintegration into parental or kinship care, centred services at the community level. In or the placement and supervision of children addition to providing the evidence, the good in alternative family care. practices and lessons learnt from testing The social authorities, working together and documenting the deinstitutionalization with the institutions, would need to exercise model, practical guidelines, protocols important gatekeeping functions to ensure and training programs would need to be that only eligible children, i.e. satisfying set developed and tested by staff of institutions criteria, were admitted into institutions. and social work practitioners. Admission to institutions would also be more Cost analysis and assessments of human stringent, following the “family-first” principle and financial resources to support such a in accordance with the National Standards transformation could also be produced as of Care. Placement in care would entail part of this project and later used by the periodical reviews, reflected in formal care government and social service providers plans. Options for return and reintegration to plan and cost effective interventions for of eligible children would be based on proper children and their families. Effective costing assessments of children’s best interests and of interventions for children has been a major needs, rather than the needs of institutions. obstacle to the reform of social services Recruitment practices would be revised and away from residential care, as government preventing institutionalization through the planners have been unable in the past to provision of family support services would produce costing for non-residential services. become a priority. The cost of food-per-day-per- child system
Changing the Paradigm 119 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) used by KEMENSOS to allocate funding piloting the standards in the three selected for children’s services does not reflect the institutions was a priority. The Monitoring reality of delivering a range of services, let Team established at provincial and district level alone doing so for children and families living provides overall supervision and guidance on across vast areas rather than residing in the process of deinstitutionalization in those one institution. This project will enable real three selected institutions. A decision by costing to be provided for family support the head of the West Java provincial social services, including essential operational authority, also the head of the Monitoring costs for service providers to deliver those Team, provides the mandate for the services in terms of human resources and piloting process and confirms the selection infrastructure needed. of the three institutions (4663/KEP.167/ BALINSOS/2011). The approach taken The pilot is still in its first year and in this Implementation of the deinstitutionalization initial phase the focus has been on ensuring pilot began in 2012 in Bandung with three agreement and common understanding institutions, each one presenting different between all stakeholders about the purpose of learning opportunities. One is a typical the pilot and the aims of deinstitutionalization. government run institution with a traditional Training in the National Standards of Care, in focus on access to education for children child protection and permanency planning, of poor families. Another is a baby and and in good parenting was conducted for infant home run by Muhammadiyah that all staff of the selected institutions, for cares primarily for younger children who the government social workers placed in have been abandoned or are facing acute the institutions across West Java, and for protection issues. It provides long-term care local officials from the social affairs offices for them, with a majority of children staying at provincial and district level. Separate there for the duration of their childhood, but processes are being conducted with the it also occasionally supports the placement children in those institutions to present the of babies and infants into foster care families. National Standards and explain the purpose Unusually, this institution also runs an of deinstitutionalization and what it entails. important program to support children’s The research in institutions, including the access to education through outreach child-led research, has shown that while services, providing a potentially important institutionalized children are often sad to model for this. The third institution is run be apart from their families they are also by a local Islamic organization with a focus aware that the institution is their means to on providing access to education to children access education and this is important to from its neighbouring community, where them. In addition, they have often developed most families face socio-economic challenges. important bonds with their peers over The deinstitutionalization pilot and the prolonged periods of time. Recognising piloting of the National Standards of Care the importance of these attachments in (see Section IV.1C) and the Child and Family care decisions is essential. Ensuring they Support Centre (PDAK) are integrated understand and take an active part in the to ensure the mechanisms established are deinstitutionalization process to the greatest mutually supportive and make best use of extent possible will also be crucial to the mandates as well as available resources and success of the process. This means not only expertise. The National Standards of Care involving them in the individual assessment provide the legal and policy framework and care planning process but also in the for the transformation of the role and of implementation of the overall process and the services delivered by institutions, so decisions about it.
120 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) The team has also established systems identify their care needs and the potential for and protocols for children’s assessments, possible reunification with their parents or reunification and placement in alternative extended family members, or placement in care, in partnership with the institutions and an alternative family through foster care or local social affairs authorities. This includes adoption. Social workers from the Bandung reviews of the criteria and systems used Child and Family Support Centre (PDAK) by the institutions to recruit and/or admit are supporting this process. The process children to their services. This work is being entails: discussions with the child and staff done as an integral part of implementing from the institutions to identify primary the National Standards of Care, using caregivers or possible caregivers within the matrices and indicators developed under extended family and to determine the child’s that process, to ensure that procedures and preferences; family tracing; assessment of the forms adopted for the deinstitutionalization care and protection situation through home pilot are integrated into the longer term visits and discussions with stakeholders; approaches used by these institutions rather identification and evaluation of needs to than just as part of the pilot project. support reunification and appropriate care for the child; and development of a care plan This system change approach is also reflected and process. In some cases family contact by the secondment of two social workers and visits by the child will be encouraged for a by Save the Children to the city Social period, to enable all sides to get to know one Affairs Office in Bandung and one to the another again and feel comfortable enough West Java provincial Office of Social Affairs. to discuss and think through the implications The provincial social worker and a senior of reunification with parents or with other specialist on Gate keeping are working with members of the family. the local Forum of Childcare Institutions, the West Java provincial social affairs authorities A case management process is then used and the Ministry of Social Affairs to establish to work with the child and the family protocols for vetting and reviewing the throughout the reunification process, and placement of children in alternative care. to provide family support services and This ‘gate keeping mechanism’ is being appropriate follow-up, reviewing the situation tested to ensure the social authorities fulfil and identifying any challenges that need to their legal responsibility towards children be addressed. Support services are provided deprived of parental care, including by through the referral network established preventing unnecessary institutionalization. by the Mayor of the City of Bandung to It also provides an important opportunity to work with PDAK (see Section VI.1). The test the kind of mechanism envisaged by the case management database under PDAK is draft government Regulation on Alternative used to record agreed plans, services and Care. interventions provided to children, and ensure continuous monitoring once a child Having social workers fulfilling those has been returned to his or her family. functions in the Social Affairs Offices is also an important means of demonstrating the As of May 2012, 42 children (23 girls and 19 skills needed within government to do this boys) had been reunified with their families essential work. The seconded social workers or placed in foster care families. Assessments will also work with the local Social Affairs and intervention phases of another 72 Office to review operational structures, children (40 girls and 32 boys) were ongoing. staffing and budgets in relation to children in The assessments include not only children need of care and protection. who are already in the institutions but also children referred to it to ensure alternative The situation of all children in those solutions, through support to the child’s institutions and their families are assessed to
Changing the Paradigm 121 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) family or placement in foster care, are not Cash Transfer program for vulnerable a possibility. A total of 29 children (11 children (PKSA). Given that lack of access boys and 18 girls) had received support in to education is a primary push factor for their families to prevent family separation institutionalization, assessing whether during the same period. Decisions about financial assistance could resolve it is an which children should be prioritized for important part of any strategy to prevent assessment are made in collaboration with the children’s institutionalization. management of the institutions, based on the care needs identified (with younger children The Ministry of Social Affairs has faced some being prioritised) and on the likelihood of real challenges in effectively targeting the rapid and safe reunification (when access to PKSA. The PKSA for ‘neglected children’ education is the only factor for placement). is primarily delivered through child welfare institutions (LKSA), in particular childcare From 2012, a similar process of piloting institutions (Panti Asuhan), which are not deinstitutionalization has begun in Yogyakarta always ready or willing to deliver support with three institutions. Building on the work to children in their families. The financial conducted there to pilot the National assistance is delivered through a bank account Standards of Care, Save the Children is opened by the institution for each child, working with the local Social Affairs offices, rather than through parents or caregivers. social work schools, community organizations Although decisions about the use of the and institutions to test processes for children’s funds for the child are meant to be taken in reintegration into their families and for the consultation with the child and the caregivers, establishment of gate keeping mechanisms in reality this is not likely to happen, given to prevent unnecessary placements in the limited contact most parents have with institutional care. Assessments of the their children once they are institutionalised. children’s situations were being conducted at Working with KEMENSOS, institutions and the time of writing, and plans and procedures communities would therefore potentially for reviews of placements and admissions ensure that the PKSA is used effectively to were developed. It is hoped the Yogyakarta keep children in their families, including by pilot can provide learning about preventing ensuring they can access education locally. children’s institutionalization in a different context, with a focus on community level In December 2011 the team conducted an action and mechanisms to address risk assessment of the ‘sending/recruiting‘ areas, factors for separation. talking to local community leaders and village secretaries, school personnel and families As well as establishing gate keeping mechanisms as well sub-district authorities (Kecamatan). and supporting the reintegration of The assessment provided insight into the institutionalised children, the pilot is testing challenges faced by those communities in prevention strategies with communities where institutions regularly recruit children or where families often send their children to institutions in Bandung. Work recently started with three villages in the southern areas of West Java province (South Cianjur, South Garut and West Bandung) that were identified as major ‘sending/recruitment areas’ for institutions, including the three under the pilot. This work is being conducted in collaboration with the Ministry of Social Affairs, and in particular its Conditional Meeting with a family to discuss reunification
122 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) securing access to education for their children, solution to ensure access to education for and the role recruitment by institutions their senior high school age children. A plays in this. The fact these areas were major practice called “Mangkalan” has been used ‘sending/recruitment’ areas was confirmed since 1967, when the first vocational high by local residents and officials, despite sub- school was set up in one village. That village district authorities having adopted a policy now has three of the main high schools that only senior high school students could be serving those two sub-districts, including the sent to the cities as facilities for elementary vocational high school where agriculture, and junior level schools were available in administration and mechanics are taught. The their areas. Since 2000 at least 239 children cost of high school education is heavy, and have been sent to institutions in the cities of for families not living nearby the additional Bandung, Cianjur and Subang. burden of transport puts it out of their reach. As a result, hundreds of young people are Two main factors were identified for this. lodged with local families while they study. Only two villages had senior high schools These informal foster care arrangements and their locations were very distant. For (Mangkalan) are done on a volunteer basis. some families that meant it would cost more The young people contribute what they can in transport for their children to attend and there is no regular tariff or payment for these schools than going to institutions. The the stay. Over 100 young people attending quality of education was also a factor for one the local senior high schools were living in of the villages. Although it had a vocational approximately 50 ‘foster’ families. senior high school (SMK), the school did not have sufficient skilled teachers. The second Following the assessments and discussions important factor was that individuals under with the local communities, the team went the Muhammadiyah network had been back in January 2012 accompanied by recruiting children from those areas every representatives of the institutions in Bandung year to be sent to institutions in Bandung. that receive the PKSA and local social For poor families, the main reason given for affairs officials. The PKSA was explained agreeing to this was the security of knowing using participatory processes, including the costs of living and education for their explanation of its objectives of supporting children would be covered and that they children’s education in their communities would not have to bear heavy transport and preventing long-term separation costs (which can be as much as USD5 a day). from families. Representatives from the institutions explained why family care was One important finding from discussions important and that their role was shifting to with one of the key people responsible supporting children in their families rather for recruitment in those areas was how than on a residential basis. A selection difficult it had been to circumvent the local process was conducted and 89 families with policy stating that children below senior children of junior high school age were high school should not be sent to schools identified as candidates to receive PKSA. outside their area. The reason they had A workshop was then conducted with the persevered against that policy was demands selected families to explain the purpose of from the institutions. These prefer to recruit the assistance and how it would be delivered, elementary school age children, rather than including the role of child welfare institutions junior or high school age children, as taking in that process. in younger children means that they will stay longer and the institutions do not have to During those consultations it was decided keep recruiting. that the PKSA assistance would be delivered to a bank account opened by the families on The team also discovered that local families behalf of the child and the money managed in those areas had long found their own
Changing the Paradigm 123 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) by them in accordance with set criteria. This thereafter. Some children were rejected or process is, in effect, developing a new way abused by families while others were left of providing conditional cash transfers to behind by parents who migrated in search vulnerable families with the express objective of work and who may or may not return. of preventing family separation. Learning from For these children reunification means an this process will help determine whether this alternative family, either temporarily through model results in more effective targeting of foster care, or more permanently through PKSA, and whether conditional cash transfers adoption. like PKSA can also be used to effectively prevent children’s institutionalization. Although the Child Protection Law recognises foster care as a form of alternative care Alternative care models, like the Mangkalan and the draft Regulation on Alternative foster care arrangements, potentially provide Care provides a firm basis and system important family based models to address for it, there remain many challenges in access to education issues that result from finding and supporting formal foster care the shortage of senior high schools in the arrangements for children who need them. country. Understanding the model and This is particularly so for older children and working with these foster parents and children with medical conditions, physical young people to identify its advantages and or mental disability, as well as children born disadvantages has also become a key part under circumstances that carry social stigma, of the prevention strategy in West Java. The such as babies of mothers with HIV/AIDS or team organised a one-day workshop with babies whose parentage is mixed, including 20 of these foster families in July 2012 to those born as a result of sexual violence discuss care arrangements and approaches. experienced by migrant workers abroad. Discussions were also facilitated on the importance of attachment, child development Finding a family that is willing and able to care and parenting strategies. The foster for these children is far more challenging. families were enthusiastic and shared their Indonesia’s strong cultural and religious experiences and the challenges they face in emphasis on families is primarily on the providing care for these young people. bonds created by blood ties. This emphasis is reaffirmed in religious laws that differentiate Many of the young people in their care were clearly between biological children and still in contact with and regularly visited by children who are not. Differential treatment their families, but a few came from areas too for stepchildren or children who have far away or where transportation costs were been taken in is a recurring theme in child too high for the family to visit. The needs of protection cases. This being said, Indonesian the young people were discussed, as well as families have always embraced into their support needed by foster parents to provide families children who, for one reason or appropriate care. The team is planning to another, could not be taken care of by others work with these families to learn from yet who are not related. The findings from this model of foster care and identify what the MK Population Study show that there systems and support mechanisms should be are significant numbers of children who are put in place to ensure it provides a safe and living with families that are not biologically appropriate care solution for these young theirs and yet where they belong as a child people. (see section IV 2 A). In some cases, reunification into family care The vast majority of these children are likely is not an option, or not in the child’s best to be in informal foster care or adoptive interest. The identity of babies and infants arrangements. It is vital both to ensure these placed in institutions is often not known as children are in safe and stable care situations they were abandoned at birth or shortly and to encourage more families to take on
124 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) this critical role with children most at risk. office. All participated in a major capacity If the child protection system is to move building workshop where they heard about away from residential care there must be the experiences and practices of Families families willing and ready to take on children Australia, a major foster care agency in who may have undergone difficult and Australia, from the head of that organization. painful experiences, and whose care can be Complex questions were discussed, including challenging. The needs of these children will on relationship and contact between foster also vary from short-term emergency care children and their biological families, and the to longer-term commitment. These families, provision of support and incentives to foster though, will need the support systems and families. access to resources that will enable them to fulfil that role effectively and appropriately. Consultations with a foster family and with a women’s organization already providing The Deinstitutionalization pilot in West family support services, Aisyiyah, were also Java is also moving to develop a foster care held to discuss how potential foster families system to ensure this option is available. A could be identified and the challenges in mechanism for the placement of children doing so. One clear barrier identified is that in foster care and the recruitment and informal foster care in Indonesia tends to be assessment of potential foster parents was longer-term, at least until a child has become developed and established by a working a young adult or become independent. The group that includes provincial and city social concept of taking in a child for a short period authorities in West Java and Bandung, the of time is very new, and finding families willing Ministry of Social Affairs, the National School to make that kind of commitment might of Social Work (STKS), the local Family prove more difficult. Planning agency, the provincial and city civil courts, local NGOs and representatives of The Foster Care working group has met a childcare institutions. number of times to discuss a draft Manual for Foster Care Services in West Java Province. In February 2012, the team supported The Manual explains the purpose of foster a workshop with these actors to share care; sets out the criteria for becoming a understanding about foster care and the foster parent and eligibility for a child to be draft regulation on Alternative Care and its fostered and the mechanism and rules to provision on foster care; and to learn about be followed to place a child in foster care; foster care systems in different countries and identifies agencies providing support and discuss foster care practices and needs and services to foster families. Agreement in Indonesia. Representatives from local has been reached on the mechanism and childcare organizations, including SOS Villages- system for foster care, including registration Kinderdorf and Yayasan Pembinaan Asuhan of potential foster families, procedures for Bunda (YPAB) presented the mechanism matching child with family, placement process they use to place children in foster care and supervision, and support services for the arrangements. child and family. Discussions were ongoing about the role and responsibilities of the A working group was established in February Social Affairs Offices at district/municipality 2012 to discuss and develop the mechanism and provincial levels, and training needs and for foster care, the criteria for foster parents tools for foster parents and foster care and children’s eligibility to be fostered, and providers. the procedures to assess and oversee foster care placements and for providing support A Forum of Foster Families in West Java to foster families. A team of 16 people was was also established in June 2012 with the selected and assigned the mandate from participation of ten foster families, to share the Head of the West Java Social Affairs and learn from their experiences and provide
Changing the Paradigm 125 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) mutual support. The team has also started to facilitate discussions about adoption in West Java, including the problem of adoptions being conducted informally, and even illegally, as a result of a weak system and lack of clear mechanisms and responsibilities. In May 2012 a workshop was organised in partnership with the provincial Office of Social Affairs to discuss the placement of children in adoptive families that do not follow the piloting had long been partners in this appropriate legal procedures. Participants process, starting from the Quality of Care included the Social Affairs authorities research. They had formally engaged in the at national, provincial and municipality process of change and were committed to levels, the local courts, the police, the civil do so. Working with them to implement that registration office, hospitals, local NGOs change, however, highlighted to them and and childcare institutions. Existing legal those involved in this process just how big procedures and mechanisms for adoption, the change would have to be. including the draft Regulation on Alternative Letting go of well-established ways of working, Care, were discussed and agreement was of almost unchecked authority and discretion, reached that greater awareness of the law and the ability to act unilaterally has proved and mechanisms was needed to support safe difficult at times. The team has often had to and stable adoption placements for children. tread slowly and patiently to find ways to The public need to know the procedures to move forward with agreed interventions and follow for children abandoned or neglected. programs. It has also had to adopt different Public information should also be widely strategies with each pilot institution. Some distributed to promote safe adoptions, of this is a reflection of the different nature including through hospitals, community health of the services and approaches used by each clinics, institutions and police stations. Save institution. Government institutions are more the Children is now working with the West regulated and generally have more formal Java social authorities to develop material mechanisms and procedures, but with that on adoption, its purpose and the procedures come highly bureaucratic rules. Privately to be followed, including how families can run institutions have far more flexibility, but register to become adoptive families. decisions tend to be in the hands of one or two individuals, and there are rarely procedures Key findings and learning in place to enable others to participate. As a result, progress in each institution has Moving from establishing a new framework happened at a different pace and activities for the provision of alternative care to have had to be adapted. implementing it was always going to entail a transformation of services provided by In the government institution policy and institutions, and of their role and relationships budget changes have been initiated, including with children, parents and social authorities. new targets to decrease residential services The institutions selected to participate in to children and increase outreach support
126 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) services to families. The criteria and the social authorities to ensure effective procedures for admission have been amended decisions can be taken, but these individuals and a joint team composed of the staff of the already have very busy schedules and institution and members of the PDAK team responsibilities. Involving them is essential are now conducting family assessments for because they will be the ones in a position children referred to the institution. to take this work further and integrate it within the plans, budgets and structures of In the private institution providing residential the social authorities. That child protection services for children from poor families living has already been introduced as part of the in close proximity, it was essential to explain strategic thinking and planning of the Head to those families and to the community the of West Java provincial authority shows just purpose of deinstitutionalization and the how important this approach is. In the future, shift of services from residential to non- however, the Monitoring Team will need staff residential. Preventing children entering assigned specifically to this work to enable residential care while others are being them to supervise placements and the quality reintegrated is critical if the process is to be of services from hundreds of alternative care successful. Unless local families understand providers. that they can receive services without having to place their child inside the institution, One of the lessons from the children will continue to be referred and the deinstitutionalization pilot so far is that the institution’s management will find it hard to diversity of children’s situations, from care, refuse them. protection or social-economic perspectives, will entail different responses and approaches For the Baby and Infant home, an important that often cannot be delivered within a short challenge has been the exposure to existing time frame. Without services or resources practices in terms of children’s placement accessible to the child’s parents or caregivers, in foster families. For a well established reintegration can be problematic. A child institution whose head is both a key ally of the may regain a family but the reason he or she process and also one of the most influential was institutionalised in the first place remains actors in the national forum of childcare unaddressed. The deinstitutionalization institutions, suddenly having social workers process needs to go hand in hand with the reviewing procedures and introducing more development of community level financial formal ways of placing babies in families and psycho-social services that can prevent can be challenging. The lack of clarity separation and support safe and stable about adoption and foster care procedures reintegration. In some cases, this will mean and continuing conflicting feelings about a child’s reintegration will be progressive, adoption and the ability of families to care starting with a process of reconnection, appropriately for non-biological children also supporting contacts and family visits, while constitute important barriers to children’s also identifying the sources of support and placement in alternative family care. resources available to them. In other cases Although the gatekeeping mechanism in the the reintegration process will be able to go Office of Social Affairs has started to operate ahead in a relatively short period of time, and vet placements of children in alternative provided the right form of support is available. care, institutions are using it in some cases Conditional cash transfers such as the but by-passing it in others. The capacity of the Hope For Families Program (Program Keluarga Social Affairs office to supervise placements Harapan-PKH) or the PKSA cash assistance and ensure the process is followed remains to vulnerable children may be powerful limited. The Monitoring Teams at provincial ways of ensuring children are able to access and city levels are composed of some of education by enabling families to cover the most experienced and senior staff from
Changing the Paradigm 127 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) costs associated with going to school that a safe and stable care environment and constitute major barriers for poor families. supporting the maintenance of family and In order for it to work, however, this social community ties that will reduce risk factors assistance needs to be effectively targeted and strengthen their resilience. Learning and empower caregivers to make the right from the Pemangkalan foster care system may decisions about their children’s education. provide some ideas about ways of supporting The risk of providing cash assistance through young people to access education while also institutions, as in the case of PKSA, is that it learning to develop the independence and strengthens the institutions rather than the social responsibility that living in a family and families’ ability to care. community entails. Although it is critical for KEMENSOS Other models will also be needed, including and the local social authorities to provide smaller group homes and independent financial support to social service providers care living for young people transitioning so they can deliver the services needed to adulthood through higher education or at community level, PKSA sends mixed employment. Getting welfare organizations messages and may not be the right way to to think about and develop such models is develop or finance these. By seeking to an important part of the transformation of address a range of vulnerabilities through their role. This means being proactive and the provision of cash, without also ensuring developing models that address the needs that appropriate services are available to of vulnerable children in a range of ways, address the psycho-social needs of those rather than ‘one solution to all’. Child children and their families, the program may welfare organizations can become important compound problems rather than empower providers of care services, including family families to deal with them. Directing cash preservation services, foster care, adoption assistance instead to families known to and even small group residential facilities for face a range of risk factors in care terms, teenagers who need a place to stay while such as single parents, grandparents, etc, they access school. Whatever services they may empower these caregivers to do their provide, however, they will need to do so with essential job successfully. The prevention of the support and under the supervision of the institutionalization work may provide some government authorities legally responsible important lessons about the types of family for the protection and well-being of these support that can strengthen parents and children. caregivers in the face of adversity. Different approaches may also be needed for teens and young people wanting to access senior high school education (SLTA), including vocational schools (SMK). The small number of these schools and the higher cost of accessing them means that, for children of poor or deprived families, accessing these schools while remaining in their families may not be an option. Older teens have different care needs than younger Drawing from the Child and Family Support Centre in children, and for them the issue may not be Bandung public information leaflet. reintegration into their families but creating Drawing by Frila Elnando Noor
128 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) VII. Child Protection System building: The model used in Indonesia and organizational lessons from it
The work that began in 2005 with the A systems perspective means a long- secondment of two Save the Children child term investment in processes and protection advisers in the Ministry of Social people Affairs is ongoing in 2012, with a much bigger team working in West Java province, The team seconded to the Ministry of Yogyakarta province and at the national level Social Affairs in 2005 was composed of an in Jakarta, under a comprehensive Family international adviser and an Indonesian child Based Care program. Save the Children is protection specialist. Seconding two members currently planning the next phase of this of staff was a considerable investment on the work to consolidate the shift of paradigm part of the organization, and one that had a and support its implementation from 2013- long-term vision at its core. Part of the role 2020. Although the team will continue work of the international adviser was to mentor at the national level to strengthen the legal and build the capacity of the Indonesian child and policy framework for children’s care protection specialist to eventually take over and protection, and to shift funding and this work. The international adviser brought resources towards these children and their experience and expertise from a range of families, it is also likely to increase its focus countries and in the international framework on learning from, and testing, community for child protection and child rights. Part of level mechanisms, services and approaches. the role of the Indonesian specialist was to assist the international staff in understanding It will also work more comprehensively the Indonesian context and provide the local on strengthening preventive strategies and expertise that was just as critical to success. services to address risk factors that lead to family separation, institutionalization and The team worked together for five years and child protection concerns. An effective child in 2010 the international adviser was able to protection system does not wait for the child hand over responsibility and leadership for to be harmed to respond. Instead it identifies, this work to her Indonesian colleague. She mobilises and strengthens resources available continues to provide occasional support on a to children and their families at community consultancy basis. Many of the key individuals level to reduce and mitigate risks factors. It involved in this work from the start have achieves that by strengthening the capacity continued to be involved in a number of of parents and families to ensure their ways, sometimes directly, often indirectly children’s development and well-being, and through providing support, advice and time by working with children and key individuals even when they have changed position or and networks in their lives and communities. moved on. Some of the challenges faced in adopting a The two advisers were based in the systems approach in Indonesia have also Directorate of Children’s Services for provided valuable learning for Save the almost three years and moved back to the Children, and this has shaped some of the Save the Children office in 2008. Being based strategies and approaches it has adopted. within the Ministry had both advantages and A few of those lessons from this work are disadvantages. It meant having the ability highlighted below. to provide direct technical support to the
Changing the Paradigm 129 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Director and his staff on an ongoing basis; to be addressed, and the team increasingly understanding developments and being aware started to engage with these other actors. of strategic opportunities; being involved in day to day discussions and learning directly One of the unexpected drawbacks to being through observing practices and processes; seconded to the Ministry was that the team exchanging views and contributing to was at times disconnected from the broader meetings and policy exchanges that may not Save the Children program in Indonesia, otherwise have been possible. and often had to find ways of explaining and advocating on behalf of its work with It was also an important basis to establishing colleagues in the country office. This became the partnerships and relationships that particularly challenging in 2008 when Save the would enable trust, engagement in and Children’s presence in Indonesia underwent ownership of this work. It is through a major restructuring process, including developing relationships, sharing experiences merging the Save the Children US and Save and challenges, learning and developing at the Children UK country programs to which a personal and professional level together the team reported. This became an important that new perspectives, new approaches and factor in the decision by the KEMENSOS new commitments are built. Working in the advisers to move out of KEMENSOS and Ministry, conducting the research, advocacy into the Save the Children office. and policy work and testing interventions together provided opportunities to learn Working at multiple levels to support from one another, appreciate different system change contributions by different people, recognise limitations and respect differences of The approach to strengthening the national opinions or perspectives. child protection system taken by the team was partly determined by being seconded Responding to needs without losing to a major Ministry at the national level, as strategic focus well as the systemic nature of the problem identified. The role of KEMENSOS as the A drawback of being in the Ministry was that primary national authority in charge of social it was, at times, hard to not to get involved welfare services for children meant that in issues that were of lesser strategic it had a critical role in setting the agenda significance, or even outside the scope of for such services nationwide and providing work for the team. A delicate balance had to the legal and policy framework for them. be reached between availability to Ministry At the same time, as the main financial colleagues to provide input and technical contributor to childcare institutions it was support on issues important to them, and essential that it reconsidered its role and establishing boundaries to ensure the team was in a key position to initiate and support could get on with the strategies and plans the shift needed. This entailed approaching it had developed with the Ministry. It made system reforms by starting with the national, it somewhat harder on the team to work formal framework, rather than starting at with and engage with other Ministries and community level. departments that had an important role in the child protection system. As advisers to A number of national and international KEMENSOS, the role of the team was to NGOs such as Plan International, World support the Ministry to fulfil its mandate Vision, and Child Fund had been working towards children and less to ensure other for several years on community-based child key agencies played theirs. As the work protection mechanisms in Indonesia. Save the progressed, however, it was clear that Children also had a number of community- implications for other actors also needed based programs addressing child protection
130 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) issues, including anti-trafficking and physical chance of seeing this process through and humiliating punishments in schools. What effectively and on a sustainable basis. was lacking, however, was an appropriate framework for the national child protection Sharing the learning from both system that would integrate these initiatives by national and international ensuring the policies, mechanisms, mandates, perspectives resources and services were properly positioned to support community and family Having a team with an international and a level interventions. The team’s approach was national staff meant that both could contribute thus to fill that gap by adopting at the outset a their particular expertise to the shared learning multi-level strategy to system change. process, and complement one another. It also strengthened Save the Children’s ability Although the first three years were mostly to advocate effectively by providing both an focused on filling the knowledge gap and ‘internal’ and an ‘external’ perspective. Being a building the evidence and political will national adviser means being far better placed needed to foster change, the strategy also to understand context, appropriate ways of paralleled the work to develop and test engaging within the socio-cultural context, and alternative approaches with children and having more shared history and knowledge. families at community level. This approach Being an international adviser means being a ensured that changes being initiated at the foreigner, someone that can bring potentially national level would not only begin to be useful knowledge and understanding from reflected in practice on the ground, but that other countries and cultural contexts, but who learning could be drawn from those pilots is not expected to ever fully comprehend or to feed back into the national level legal and abide by local cultural norms and expectations. policy work. At times the national staff can be more Doing this was not without challenges, effective by engaging through shared however, particularly funding. In a context knowledge and identity, but this too can where ’number of beneficiaries reached’ is have its drawbacks, as that person is often a major criterion for most donors, adopting expected to behave, act and relate in set such an approach meant finding the funds ways. Expectations about the international to work at all these levels at the same time, adviser are less tightly set. Coming with rather than one at a time. Fragmentation in expertise from other countries means that donor funding and interests results in many in some circumstances the international looking for programs that can deliver direct adviser’s voice may be more likely to be services to specific groups of vulnerable heard or considered. On the other hand, children on a significant scale, and a few being a foreigner is also why at other times interested in research work which often that voice will be dismissed at the outset, does not extend to taking the next step of particularly when it touches upon sensitive development of new interventions on the issues relating to culture or religious matters. basis of the findings. Yet the work conducted In a context where Save the Children was by Save the Children over the seven year trying to initiate major changes in beliefs, period demonstrated that what was needed attitudes and approaches, having both voices was a process of change capable of operating and perspectives proved invaluable. The at multiple levels in a complementary and two advisers were able to complement mutually reinforcing way. Initiating a process one another and offer both perspectives in of deinstitutionalization in Indonesia, for support of that change. example, without also developing the social welfare workforce needed to implement this It also offered an important mechanism for process, would have undermined any realistic language and cultural exchanges. It was
Changing the Paradigm 131 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) critical that the international adviser be the implementation. This presented the fluent in Indonesian in order to be effective, dilemma of wanting to work with the best but being fluent rarely confers the subtle practitioners but not wanting to take them understanding of the language that comes away from the organizations where they with being a native speaker. Similarly, the worked and could have a greater long term national adviser’s command of the English impact. In addition, many of the key partners language would not allow full understanding were working within the government and of the meaning and conceptual scope of were civil servants, important where job more technical terms in English. Both security is scarce. advisers being able to discuss, explore, and search for appropriate words, definitions It was also critical to keep these experts and translations was particularly important where they were because that was where the in a context where complex concepts changes needed to happen. As a result, the where being explored and debated. Direct team had to resort in many cases to finding translations often lose critical meaning and more flexible ways for them to be involved in this can be problematic when trying to the work, using ‘secondment’ and short term support effective discussions and reflections consultancies, and negotiating agreements about the meaning, value and understanding with the respective agencies to enable these of these concepts. For example, there was key Indonesian partners to learn from and no agreed word in Indonesian to correspond contribute to this work while remaining to the English word “attachment”, and the within their own organizations and agencies. team facilitated important discussion with This often created headaches for Save the social work educators and practitioners to Children’s Human Resource team in Jakarta decide on and support the use of the most and potentially left the program vulnerable appropriate term. to these key staff moving on to other Having advisers who could understand and things. It also meant occasional delays in the discuss different terminologies and concepts implementation of the programs, as the staff and facilitate discussions about appropriate were not always available or the organizations translations of such concepts with were not always ready to release them at the Indonesian colleagues was a key part of the time. In practice, however, the learning and learning process on all sides. It enriched it capacity building opportunities, the flexibility significantly and, most importantly, it enabled of the program, and the shared commitment the participants to be clear about what was developed through this work proved enough being said, discussed and meant. Language to keep these important partners engaged in discussions became a key part of the work of a number of different interventions. the KEMENSOS team, particularly relevant As the piloting work increasingly requires during the development of policies and teams on the ground to implement the laws, and also during the development and interventions, finding and recruiting staff implementation of trainings and tools. with the requisite skills and expertise in child protection without moving them away Getting the right team while building from organizations and agencies also doing local capacity important work is likely to become more As the work on the paradigm shift moved challenging. The Child and Family Support from research and policy development Centre in Bandung (PDAK) and the reforms towards testing models of interventions, of the social work system form part of the it became important for Save the Children strategy to develop a larger and younger to expand the team and recruit local child child protection workforce with the skills protection experts who could support and expertise needed. Ensuring the system has budgets to recruit and keep qualified
132 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) personnel, without creating unrealistic are effective and appropriate. Developing expectations through wages that cannot be new models; building the knowledge, matched by local agencies and organizations, capacity and mechanisms to implement is crucial to the sustainability and effectiveness them; and developing the baseline and data of the child protection system in the future. collection system needed to measure impact and effectiveness are all resource and time A systems approach but project- intensive, and rarely come with large scale based funding outputs. Although an increasing numbers of donors Developing a systems approach on the refer to a ‘systems approach’ to child basis of short-term grants that often have protection, getting adequate funding for it a particular issue of focus (e.g. trafficking proved extremely challenging. Much of the or sexual abuse) or groups of children of work conducted over the last seven years interest to that donor (e.g. street children was made possible thanks to repeated core or children with HIV/AIDS), is very funding by Save the Children UK and some challenging. The focus of donor interest also members of the Save the Children Alliance, changes periodically and ‘fitting’ longer-term in particular Save the Children Sweden, strategies into that often entails losing sight Save the Children US and Save the Children of what is at stake, or of the flexibility needed Australia. The work was only possible to respond to strategic opportunities and thanks to the incredible public response challenges. Thankfully some donors have to the 2004 Indian Ocean earthquake and recognized the need to support the process- tsunami and funding provided through the focused work that system change entails. Disaster Emergency Committee (DEC), The Open Society Foundation is supporting a joint fundraising body for aid charities in the deinstitutionalization pilot and IKEA will the UK. Joint funding from the Ministry of be supporting new work to test community- Social Affairs provided important support to based mechanisms to support families caring this work and highlighted the commitment for children with disability. of the Indonesian government to integrating Getting more donors and members of the public the learning and models into its strategic who are key contributors to understand why priorities and plans. system change is important and how it happens One of the challenges of fundraising for should be a focus area for global advocacy. Few system-based work is that the changes people working with donors to develop grant- sought are long term and often translate into making proposals are aware of what system changes in policies, laws, structures, skills and change entails in their own country, let alone mandates, rather than the immediate or easily in another. It took at least 40 years for the measured changes in children’s situations UK, as with many other Western industrialised that donors understandably prefer. Although countries, to reform its child welfare system system change is far more likely to be away from primarily residential based services, sustainable and to reach greater numbers of which is an indication of the complexity of the children than any grant-based intervention, it process and the vested interests at stake. That does not provide direct services to children it is still in the midst of major reforms of its child and communities and as a result numbers of protection and social work education systems beneficiaries can be small, particularly in the should also be food for thought. initial phase of research and advocacy work. It reflects the fact that no single country has When interventions or services are provided found the perfect solution or the perfect it is generally done on a pilot basis to enable model, even less one that can be transposed key partners, in particular the government, to to a very different country context. Given test and develop models of interventions that that context, the work done in Indonesia is
Changing the Paradigm 133 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) just beginning. While it is hoped that children support their well-being and agency, it is in Indonesia will not have to wait 30 years important to recognise just how much before they are able to grow up and develop remains to be done while still acknowledging in safe, stable and loving environments that how much has been achieved.
Yudha, 20 year old boy from West Kalimantan
Yudha is the youngest of seven children. while helping root out the weeds from He has three brothers and three sisters. among his parents’ rice plants. He spent They are all Dayak Belangin. Of the seven approximately three years living in the siblings, three are Catholic and four are forest at the family fields. Protestant, including Yudha. Yudah has lived in a childcare institution for seven years. One day when Yudha was five he left the forest and returned to his village. He stayed there for one week. On the way Yudha’s family back to the family fields his mother took ill Yudha’s father worked in the fields and his with a fever. By the time they had reached mother helped. Their fields were deep in the fields in the evening his mother was the forest so his parents frequently used still feverish. After three days she had not to overnight there. The area of forest that recovered. Yudha’s father then resolved to belonged to his parents was not big and take her and Yudha back to the village. She they practiced shifting cultivation. Besides still had not recovered by the time they working on the land, Yudha’s father was arrived there. also known as a shaman and knew how to Yudha says that his mother’s illness was treat the sick. Yudha says he liked to see “strange”. The fever would not break and people coming to his father for treatment. suppurating red boils appeared on her Yudha says his parents were poor and unable body. Once at home, his father treated to fully educate his brothers and sisters. mother. “My dad is a shaman, so he treated One of his brothers graduated from high mum himself,” explained Yudha, who spoke school but had to work at the same time. haltingly as he tried to hold the grief in. His Yudha’s other siblings never graduated from mother died at twelve noon. “When Mum primary school, although some got as far as died I didn’t know. I was sleeping beside her. grade 4, some grade 6. The brother who Then I heard my brother crying so I started graduated from high school now lives and crying too but I didn’t understand that mum works in the city, rarely returning home to had passed away”. Yudha was five when his the village. His other brothers and sisters mother died. are married and live in other villages. Only After his mother died his father became Yudha still lived with his parents. sickly and did not return to the fields. He stayed at home with Yudha. Both Yudha Life before the Institution and his father now had to be supported When he was small Yudha spent a lot of by his siblings even though none of them time with his parents at their fields in the had regular jobs. Yudha’s father would forest. He still remembers living in the sometimes do a little work in the rubber forest with his parents, watching over plantations, while his siblings worked the their fields. He liked playing in the fields family fields in the forest.
134 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Starting at Elementary School the following reason for this: “My brother In 1994 Yudha started elementary school lives far away and it costs a lot to get there at the age of seven. His father was at his so he has to keep working all the time. I wits’ end as he could not afford to pay the feel sorry for him.” It was only during the school fees and buy Yudha’s uniform. second quarter of grade 3 that the shoes finally arrived. However, “the shoes were “Seven days after mum died, dad told my too small but I kept wearing them anyway. brothers and sisters that as he was old and There were already holes in them after two sick they were going to have to look after me months,” Yudha recalls, while nodding his from then on.” But Yudha’s siblings were in head sadly. precarious financial straits themselves so they were only able to help out with food. When Yudha was in grade 5 at elementary There was nothing they could do to help school he was home one day and there with his school expenses. In the end he was nothing to eat in the house. He was had to go to school shoeless and without desperate. Then one of his older siblings a uniform. arrived with rice, saving Yudha from starvation. “I really remember that day as “My older brother in the city promised that I saw that dad hadn’t cooked anything. He he would buy me shoes. I waited and waited just sat there dreaming, like he was in a daze.” but they never came. But I still had to go to Because the family fields were not being school.” Yudha did not know whether his looked after properly they did not produce school fees were being paid or not. All he enough rice to feed the family. When the thought about was how to keep going to rice they had grown ran out they had to school. “At the time I wasn’t embarrassed as buy more. lots of my friends didn’t have uniforms either and went to school in sandals,” he replied Grade 6 of elementary school was time when asked how he felt about having to go for Yudha to sit his final examinations. The to school without a uniform. exams were held in the city as the school that Yudha attended did not provide for Yudha’s school was located about three this, so Yudha went to the city with his kilometres from his house. He walked to classmates and teacher. Besides him, a school with his friends along the edge of total of six students from his class sat the the fields. The road was very bad. During exams. The examination fee was USD the dry season it was very dusty, while 5, which was paid for jointly by Yudha’s during the wet season it became muddy siblings. Besides the examination fee, and slippery. However, this was not Yudha also brought USD 3 with him as he enough to prevent Yudha from going to would have to stay overnight. Yudha, his school, even though he did not have any classmates and the teacher slept in the shoes. school where the examination was to be held. “I was embarrassed to ask my siblings When Yudha was in grade 3, he finally for any more help.” got a pair of shoes. His brother had bought them as a reward for his good In Yudha’s village local people were doing grades at school. He had promised to quite a lot of unofficial gold mining. Yudha buy him shoes when he started at school, also looked for gold in the nearby river but never did. Then he promised to do with people from the neighboring village so again if Yudha progressed to the next after he returned home from school. grade and came in the top three of his He didn’t feel that he had to do this, class but he never showed up. Yudha gives rather he felt sorry for his siblings and
Changing the Paradigm 135 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) embarrassed that he always had to ask kilometres from his father’s house. “At the them for assistance. He would normally time, I really felt sorry for dad, as I’d left him make around 20 cents (USD) per day from behind. There was no one to look after him. the gold he found in the river – “enough to I cried but I really wanted to go to school. I buy rice, enough to feed myself and dad.” If told dad that I wanted to become a servant he was not looking for gold, Yudha would of God, but would come home to visit him.” collect vegetables from the forest and sell Yudha’s father also cried as Yudha took his them to neighbours. This would earn him leave. between 2 and 5 cents (USD), which he would spend on groceries or snacks. Before travelling to the Tebas childcare institution, Yudha stayed at his brother’s house. After a week there he was getting Going to the institution restless as his brother was showing no After his elementary school examinations sign of taking him to Tebas. Instead he kept Yudha’s second eldest brother, who lived saying they would have to wait until he had in another village, came to Yudha’s house enough money. Yudha became desperate and said, “Would you like to continue on to get to the institution as school had at school? If you do, I can bring you to the already started. “I was really upset and institution in Tebas”. Yudha was overjoyed asked to be allowed to go back home to dad.” at the suggestion as he really wanted to continue at school. “I wanted to go to school The following day his brother found in the city, like my brother, and then find a job enough money and invited Yudha to come in the city.” At the time, he didn’t know that with him to the institution. They set off it was a childcare institution. early in the morning and finally arrived at Tebas at 6 p.m. The journey from Yudha’s Yudha’s brother had heard about the village to Tebas took approximately eight institution from a clergyman who used hours and cost around USD 10. to visit his village doing missionary work. The clergyman told him about the Tebas Life in the Institution institution which took in indigent children. He immediately thought of his brother and When they arrived the woman who went back to the village to tell him about it. headed the institution, Mrs. N, welcomed Yudha and his brother. “When I met her, After Yudha heard from his brother about she asked me, ‘Do you want to go to school?’ the institution, he waited impatiently for I answered, ‘Yes, Mam.’ ‘Do you have any him to take him there. “I waited for my parents?’ ‘Just my dad’.” brother for one week, but he didn’t come. I went nowhere as I was afraid that he would After one day in the institution Yudha was come to take me and I would miss him”. enrolled in junior high school. In reality, After a week waiting for his brother, Yudha the enrolment period was over for that decided that he was not coming and that it year as school had already started and was safe to go outside again so one day he Yudha was worried that he would not be went with some friends to the river to fish. accepted. The next day, he met Mrs. N who said, “You just stay here and work in my While they were fishing someone came place. I’ll give you what I can, OK?” This was and told Yudha that his brother had arrived. how Yudha was invited to live and work in “I was really happy. I didn’t even take time to the head of the institution’s house. eat the fish I’d caught, I just wanted to go as quickly as possible.” Yudha then walked to Yudha’s enrolment in junior high school his brother’s house, which was some four went smoothly as Mrs N had a friend
136 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) working there and many of the children death, Yudha replied, “I have no parents left. from the institution went to school there. Other people still have their mums and dads.” The enrolment fee was USD 20. “Everything was paid by Mrs N. I was also given a uniform, Mrs N recalled that Yudha’s grief over bag and books.” Since then, Yudha has been his father’s death lasted for a relatively in the care of the institution and living in long time. “He was always crying and was Mrs N’s house. His daily activities there, withdrawn.” But time heals everything and besides going to school and participating in Yudha eventually stopped crying. Mrs N the activities organized by the institution, and Yudha’s friends did their utmost to consist of keeping Mrs N’s yard clean. bring him out of himself, especially his friend called Morry. Now Morry is his best “At the beginning I cried a lot, thinking about friend. my dad and brother. My brother brought me here. The next day when I returned home Working with Mr. P’s family from school, he had gone. He didn’t even say goodbye to me.” According to Mrs N, As Yudha became a teenager his needs “When he first arrived at the institution, I told changed but the services provided by the him to stay with me in my house. I told him institution remained relatively constant. to help me around the house. I felt so sorry Among other things he needed additional for him; he was so small and thin. He would money for school, including for snacks, often feel down or cry by himself so I would transport and fees. The distance between rub his head and tell him to treat myself and Yudha’s school and the institution was my husband as his own dad and mum.” approximately five kilometres. Every day he cycled as far as the highway on a bicycle With the passage of time, and with being provided by the institution. From there kept busy with his schoolwork and the he would catch a minibus the rest of the activities in the institution, Yudha began to way. The minibus fare was USD1 each way, adapt. He no longer cried and began to meaning that he needed USD 2 per day. make new friends. However the institution did not provide that money and also did not pay for the His father’s death maintenance of the bicycle, such as repairing punctures. This was Yudha’s responsibility. Yudha was not able to return home for a year and a half after he came to live at the Yudha attended school from 1 p.m. until institution. One Christmas he wanted to 5 p.m. During break time he would go home but did not have enough money, need something to eat. This was also and there were also lots of things going not provided by the institution. In order on in the institution. Then a preacher to cover these additional expenses Yudha informed Yudha that his father had passed worked in the house of a man named Mr away. P. Yudha’s main job was looking after Mr P’s citrus grove and he worked there with “I was really sad. Why hadn’t my brother told his friend Morry. Yudha’s main tasks in the me? I wanted to go home, but I didn’t have citrus grove were to clear away the grass, any money.” He continued, “When mum spray the trees with insecticides and pick died, I was still small and I was sleeping beside the fruit at harvest time. her. When dad died no one told me. I didn’t even know he was sick and dying. I cried non- He worked for Mr P three times a week stop for a week.” When asked what was it but it depended on what was going on at that most grieved him about his father’s the institution: “Nothing was definite, it all
Changing the Paradigm 137 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) depended. It could be any day. If I wasn’t borrowed money from a staff member. “I scheduled for chores in the institution, then I borrowed USD 1 from A,” he responded could go out to work.” Usually Yudha worked when asked where he got the money for from 6 a.m. until 9 or 10 a.m. Besides his minibus fare. maintaining the citrus grove, he also looked after Mr. P’s house whenever he was away. Besides borrowing from A, Yudha said he As Mr. P was a Dayak community leader also frequently asked Morry to buy snacks he was often called away. When looking for him. “Morry is more economical and after Mr. P’s house, Yudha’s duties were as doesn’t eat so many snacks,” he explained, follows: when asked why Morry had money but he didn’t, even though both of them worked 1. Hosing down Mr. P’s two pigs for Mr. P. “If I buy something, I buy a drink and 2. Feeding the chickens and the ducks a snack, sometimes bread, but Morry doesn’t.” 3. Cleaning out the pigsty and chicken Yudha regards Morry as his best friend coops so when it is time for them to perform chores in the institution he asks the staff The amount of money Yudha received in to schedule him at the same time as Morry. return for his work was not fixed. “It all depended. It could be USD1.5 to 2. The amount of time worked was also not fixed. Going Home “Yeah, it wasn’t fixed. If I needed something, In 2004, after sitting the junior high school I could ask for three days work. If I didn’t examination, Yudha returned to his home need something, I might only work once in the village. He had asked permission from Mrs week.” If he needed something urgently he N and it had been granted. She paid for his would normally be paid more: “I once said trip home: “Mrs N gave USD 10 for the fare I needed to make photocopies and was home.” Yudha was ecstatic at the prospect given USD 3.” of returning home and being reunited with Besides working for Mr. P, Yudha was also his family. At home, Yudha only met with his frequently given chores by his wife. “If I elder brother who had originally brought was asked to do something for Mrs. P, she’d him to the institution but did not get to see give me 50 cents (USD) straight away after his other brothers and sisters. He was very I did the job.” Normally, Mrs. P would ask sad that his father was no longer alive. He did Yudha to clean out the animal pens. This not visit his father’s grave, but rather spent work was incidental in nature, and would all his time at his elder brother’s house. “I generally come up when they had no time didn’t want to go home as it would only have to clean the pens themselves. Yudha would upset me by reminding me of dad,” he said. try to do some work in Mr. P’s citrus grove None of Yudha’s brothers and sisters came every week. If he didn’t work, then he to meet him. would find it difficult to ask for money. After a week at his brother’s house Yudha If Yudha did not work during a particular returned to Tebas. His brother gave him week he would not be brave enough to go the USD 10 for the fare. Yudha wanted to Mr P’s house. It had happened in the to get back to the institution as quickly as past that he didn’t work for a full week. possible as he was afraid he would be late When asked why he did not work, he said registering for school. he “couldn’t be bothered.” As a result of not In addition, as the examination results had working he had no money for his minibus not yet been announced he was afraid there fare. In order to make up the shortfall, he might be other things he would have to take
138 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) care of. Furthermore, Mrs N had warned Enrolment in SMEA costs USD 20, which him not to spend too long at home. “Don’t was paid in full by the institution. During spend too long in your village, OK? You haven’t got his time at SMEA, however, Yudha was held your exam results yet and you have to register for back one year. He was not happy there. school again.” “It didn’t suit me, I was bored. It’s also difficult to get jobs.” He decided to transfer to the Failing the Final Examination Technical School in which he had been interested all along. When asked why he Yudha sat for the Final National Examination wanted to go to STM, he replied, “I want (UAN) in grade 3 of junior high school. to be independent. I want to know all about Of the seven students that took the engines so that I can get work quickly. There examination, two failed. One of them was are lots of garages. Who knows, maybe one Yudha, who failed mathematics. When asked day I’ll have my own workshop.” In addition, why he had failed Maths, he replied, “Maths an STM had opened in Bekut, which was is difficult. I didn’t like studying maths.” He close to where Yudha used to go to junior added that the teacher frequently failed to high school. He would be able to get to show up for class. Yudha also admitted he the new school by riding his bike as far as was a reluctant maths student as there was Tebas and walking from there. The school no one in the childcare institution to whom transfer went relatively smoothly, with he could turn for help except for the other Yudha organizing it himself. He got his children, who also didn’t understand maths. junior high school certificate from SMEA “It was no big deal... it’s really difficult. Mrs and then enrolled in the STM in Bekut. N understands,” he said when asked how he The institution supported the move and felt about not passing the UAN. As he had paid for the transfer fee USD 20. He has not passed the first time around, Yudha had been enrolled there since July 2005. to repeat the Maths examination the next time around. Leaving the institution for a time In June 2006 Yudha decided he would leave Enrolling in SMEA (Economics High the institution. “I wanted to be free and School) to work,” he explained. When he left the Before he knew whether he had passed the institution he worked in a citrus plantation repeat Maths examination or not, Yudha owned by a Chinese family. He also lived was enrolled in the High School focusing on on the plantation. He was paid USD 5 per Economics (SMEA). SMEA was not his first week. “If you worked hard, you could earn choice; however, the staff at the institution more as it depended on the number of trees.” had urged him to enroll in SMEA as it Describing his work, he said, “I worked offered better employment prospects so from 7 to 9 a.m., or 2 to 4 p.m. on Sundays, Yudha agreed and followed his friends who as I would be going to church in the morning. had already enrolled there. “My friends told I learned how to drive a tractor when I was me that if I wanted to get a job quickly, SMEA there.” was the place to go. Also, lots of my friends from the institution had enrolled in SMEA so I After leaving the institution he teamed up did the same.” Another reason he enrolled with some women who also worked in the in this SMEA was that it was close to Tebas. plantation. They all lived in a shed that was In reality, he wished to enroll in a Technical provided for accommodating the workers High School (STM), but the nearest one on the plantation. Although Yudha had left was in Singkawang. the institution by this stage he still went
Changing the Paradigm 139 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) back to the church there, as it was not water, cook rice and spinach, and fry fish. too far. He is a real expert at frying. The fish that he fries is always delicious and never burnt, During this time Yudha did not attend even though he cooks on a big wood fire. school. When asked whether it was When cleaning the kitchen he does not freedom that he had been seeking, he mind sweeping the floor, even though it replied, “No, I had to work.” As a result is made of crumbling old concrete blocks. he was ready to return to the institution In addition to the regular chores he also when Mrs N came to pick him up. His collects firewood once a week. main motivation in returning, however, was that he wanted to continue school. Now that he is back at school, though, he Yudha’s wishes is very happy as the school is arranging to Yudha hopes that everyone will pray for get all their students driving licenses. him as he wants to become a servant of God. He also wants to become a livestock Children’s activities in the trader. institution Yudha is on the chores roster in the Other people’s comments about mornings twice a week. The chores he was Yudha required to do were as follows: Mrs. N: Yudha gives up easily and is always changing his stance, never the same. He also (a) Prepare afternoon meal. The children keeps his problems bottled up inside him. He were required to boil water and doesn’t tell anyone else so he’s often found cook rice, vegetables and side dishes. moping and crying by himself. He likes to (b) Clean the auditorium that also serves help others. He likes to give. He has money as a dining room. because he works. (c) Clean the kitchen. E (a child in the institution): He is shy, quick He is quite an expert at cooking. When he to smile, but he doesn’t say much. does the morning chores he cooks from 7 to 9 a.m. His co-worker on morning Morry (his best friend): He is good fun. He chores is Morry. When on duty they boil likes to help and he doesn’t get angry easily.
140 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) References
Barrientos, A., & Nino-Zarazua, M. (2011), Social transfers and chronic poverty objectives, design, reach and impact, The Chronic Poverty Research Centre. Bilson, A., Fox, L., Gotestam, R.,& Harwin, J. (2003), Changing minds, policies and lives: Gatekeeping services for vulnerable children and families. UNICEF and World Bank. Browne, K. (2009), The Risk of Harm to Young Children in Institutional Care, Save the Children UK. EveryChild (2009), Missing: Children without parental care in international development policy. November 2009, London, UK. Irwanto, Meilisa, Ria, A. & Siska N. (2007), Analysis of the Concept of Child Protection and its Implementation in Indonesia: A Preliminary Study. The University of Atma Jaya and Save the Children UK. Martin, F. & Sudrajat, T. (2006), A rapid assessment of children’s homes in post-tsunami Aceh. The Ministry of Social Affairs (Kemensos) and Save the Children in Indonesia. Martin, F. & Sudrajat, T. (2007), Someone that Matters: the quality of care in childcare institutions in Indonesia. The Ministry of Social Affairs (Kemensos), Save the Children in Indonesia and UNICEF. Martin, F., Nugroho, S.C. & Sudrajat, T. (2007), A rapid assessment of the Islamic boarding schools (Dayahs) in post-tsunami Aceh. Provincial Department of Education NAD, Save the Children in Indonesia and UNICEF. Martin, F. (2009), Changing the paradigm of children’s care and protection in Indonesia. Children’s Bulletin. Volume 6/2009. Indonesian Ministry of Social Affairs. Martin, F. (2011), Improving Child Protection Responses in Indonesia: Learning from the Protection Homes for Children (RPSA). Save the Children and the Indonesia Minister of Social Affairs, 2011. Pusat Kajian Perlindungan Anak (2011), Building Social Protection Systems for Children in Indonesia; An Assessment on the Implementation of the Ministry of Social Affairs’ Social Assistance Program PKSA and Its contribution to the Child Protection System. Jakarta: Pusat Kajian Perlindungan Anak, University of Indonesia. Santi, K.E. (2007), Togetherness is beautiful: Report from the child led research in Maluku and West Kalimantan. Save the Children in Indonesia. (Internal) Save the Children (2009), Child led research in 6 childcare institutions in Maluku and West Kalimantan. Save the Children in Indonesia. Save the Children (2009), Keeping children out of harmful institutions: Why we should be investing in family-based care. London. World Bank (2012), Protecting Poor and Vulnerable Households in Indonesia. Jakarta, Indonesia: World Bank. World Bank (2012), Social Assistance Program and Public Expenditure Review 1: Public Expenditure Review Summary. Jakarta, Indonesia: World Bank.
Changing the Paradigm 141 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) 142 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) Changing the Paradigm 143 Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012) 144 Changing the Paradigm Save the Children’s Work to Strengthen The Child Protection System in Indonesia (2005-2012)