FIELD HANDBOOK on UNACCOMPANIED and SEPARATED CHILDREN Inter-Agency Working Group on Unaccompanied and Separated Children
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FIELD HANDBOOK ON UNACCOMPANIED AND SEPARATED CHILDREN Inter-agency Working Group on Unaccompanied and Separated Children Alliance for Child Protection in Humanitarian Action Acknowledgements This Field Handbook on Unaccompanied and Separated Children and additional training materials are a product of the Inter-agency Working Group on Unaccompanied and Separated Children (IAWG-UASC). Developed by Sarah Uppard and Lili Birnbaum, the handbook benefited from the support and combined efforts of the members of the IAWG-UASC throughout the drafting process; many thanks to Mariann Aase, Kristin Barstad, Mathilde Bienvenu, Laura Boone, Annalisa Brusati, Celine Buvelot, Chiara Capobianco, Alexis Garnett, Pernille Ironside, Lea Labaki, Laura Lungarotti, Jennifer Morgan, Frieda Mwebe, Monique Nanchen, Monica Noriega, Guilhem Ravier, Janis Ridsdel, Megan Rock, Eduardo Garcia Rolland, Monika Sandvik-Nylund, Ibrahim Sesay, Despoina Spanoudi, Katharine Williamson and Makiba Yamano. Special thanks are owed to Pernille Ironside, Mathilde Bienvenu and Ibrahim Sesay, who coordinated the process of developing and finalizing the field handbook on behalf of the IAWG-UASC. We would also like to extend our thanks to the many people who have contributed experiences, views and insights towards the preparation of the handbook. The feedback, comments and practical suggestions of a wider reference group were invaluable. Sincere thanks go to the following individuals: Catherine Barnett, Ramsey Ben-Achour, Sitnour Ali, Marleen Kortals Althes, Eva Bellander, Margaret Brown, Fiona Bukirwa, Severine Chevrel, Shyamol Alam Choudhury, Andrew Dunn, Anne Sophie Dybdal, Camilla della Favera, Lola Gostelow, Peter Beat Gross, Petra Heuser, Jennifer Hopps, Camilla Jones, Brown Kanyangi, Christine Lipohar, Hani Mansourian, Cecile Marchand, Christian Michaud, Jennifer Morgan, Celia Petty, Sian Platt, Eduardo Garcia Rolland, Saudamini Siegrist, Rebecca Smith, Marie de la Soudière, Saji Thomas, Christina Torsein, Karin Ulin, Jumaneh Zabeheh, Marie Louise Kjellstrom and other colleagues in the field. We are also grateful to the various country programme offices and individuals who provided us with numerous case studies. Finally, we extend our appreciation to the UNICEF West and Central Africa Regional Office (WCARO) for organizing and hosting a pilot workshop to test the materials to ensure their relevance and applicability in a range of humanitarian contexts. The Inter-agency Working Group on Unaccompanied and Separated Children would like to thank the Government of Belgium, the European Community Humanitarian Office (ECHO), the UK Department for International Development (DFID), and the Office of U.S. Foreign Disaster Assistance (OFDA) for their contributions in producing this Handbook and Tools. Separation from parents, relatives or usual caregivers is a devastating Foreword experience for children. Separated children are among the most vulnerable of all children affected by emergencies. Having lost the care and protection of their families and caregivers just when they need them most, these girls and boys are at increased risk of physical and psychological harm, abduction, trafficking and unlawful recruitment or use by armed forces or armed groups, sexual abuse and exploitation, and permanent loss of identity. Moreover, they may be burdened with adult responsibilities far beyond their years. Indeed, it is vital that governments, child protection organizations and other protection actors work together to ensure that the most vulnerable children are protected. The Inter-agency Working Group on Unaccompanied and Separated Children (IAWG-UASC)1 was created in 1995, in recognition of the diverse needs of these children and the fact that the range and complexity of circumstances in which children become separated could not be addressed by a single agency. The development by the IAWG-UASC in 2004 of the Inter-agency Guiding Principles on Unaccompanied and Separated Children was an important milestone in promoting a coherent approach to the problem. It also served to improve collaboration and good practice in working with unaccompanied and separated children under a protection framework and in line with international human rights, humanitarian and refugee law. This Field Handbook on Unaccompanied and Separated Children reinforces the common commitment to the principles and standards set out in the guiding principles, providing up-to-date and detailed operational guidance for all actors concerned with the welfare and protection of unaccompanied and separated children. Indeed, it is essential that all actors work together to strengthen responses and meet the challenges in working with these children. 1 The members of the IAWG-UASC are the International Committee of the Red Cross, International Organization for Migration, International Rescue Committee, Save the Children, United Nations Children’s Fund, United Nations High Commissioner for Refugees and World Vision International. FIELD HANDBOOK ON UNACCOMPANIED AND SEPARATED CHILDREN 4 © UNICEF/NYHQ2013-1111/Pirozzi Inter-agency Working Group on Unaccompanied and Separated Children Contents Acronyms & abbreviations 11 Introduction 13 Summary Guidance 17 SECTION ONE: FOUNDATIONAL ELEMENTS OF UASC PROGRAMMES 31 01 33 International legal framework and 1.1 International legal framework related to UASC 35 mandates related to UASC 1.1.1 International human rights law 35 Statelessness 37 1.1.2 International humanitarian law 37 1.1.3 International refugee law 38 1.1.4 Additional bodies of international, regional, national and soft law 39 1.2 Organizational mandates related to UASC 43 1.2.1 Legal mandates 43 International Committee of the Red Cross (ICRC) 43 United Nations High Commissioner for Refugees (UNHCR) 44 1.2.2 Other organizational missions 47 02 51 Characterizing family separation in 2.1 Understanding family separation 53 emergencies 2.1.1 Causes of separation in emergencies 53 2.1.2 Non-emergency related separation & mixed migratory flows 55 Children on the move 56 Children living apart from their parents before the emergency 58 2.2 Vulnerability to and impact of family separation 59 03 63 Mitigating risk of separation: 3.1 Preventing and preparing for separation 67 Prevention and preparedness 3.1 Preventing and preparing for separation 65 3.1.1 Community-level prevention and preparedness 67 3.1.2 National-level prevention and preparedness 68 Birth registration 69 3.1.3 Preventing aid-induced separation 70 Humanitarian evacuation, including the evacuation of children 70 5 FIELD HANDBOOK ON UNACCOMPANIED AND SEPARATED CHILDREN 3.1.4 Messages on prevention of separation 72 Developing information campaigns 72 Key messages to children, parents and communities 74 Key messages to emergency actors in other sectors of the humanitarian response 74 3.2 Project preparedness 77 3.2.1 Supplies and stockpiling 77 3.2.2 Human resources 79 3.2.3 Training 80 04 83 Coordination 4.1 The importance of coordinating an emergency response to UASC 85 4.2 Framework for national and subnational coordination 87 4.2.1 Context-based coordination structures and roles 87 Cluster and cluster-like (non-refugee) situations 88 Refugee situations 88 4.2.2 Roles, responsibilities and functions of a UASC technical working group 89 4.2.3 Cross-border and regional coordination 91 4.3 Overcoming challenges to effective coordination 93 05 97 Assessment of separation and risk 5.1 Assessing risk of separation and mapping capacity 99 of separation 5.1.1 Assessing risk and vulnerability to separation 99 5.1.2 Mapping local and national capacity to respond, and critical gaps 102 5.2 Assessment of separation 105 5.2.1 Desk review and projection 107 5.2.2 Rapid assessment 107 5.2.3 Population-based estimation 109 5.2.4 Ongoing surveillance and trends analysis 111 5.2.5 Situation analysis 112 5.3 Organizing assessments 115 06 121 The basics: Programme planning 6.1 Programme development 121 for UASC 6.1.1 Supporting broader child protection systems through strategic programme design 122 Systems-strengthening 122 Planning for handover of programmes and exit strategy 125 6 Inter-agency Working Group on Unaccompanied and Separated Children 6.1.2 Designing a programme 127 Programme monitoring and evaluation 130 6.1.3 Identifying potential partners 131 Working with governments 132 Special considerations in complex emergencies 132 Working with communities/civil society organizations 133 Community-based child protection mechanisms 134 6.2 Programme resources 136 6.2.1 Programme staff, training and capacity building 136 Staffing roles and competencies 136 Training 137 6.2.2 Volunteers working with UASC 139 6.2.3 Budgets for UASC programmes 140 07 145 Case management and information 7.1 Confidentiality, informed consent and unaccompanied management for UASC and separated children 147 7.1.1 Confidentiality 147 7.1.2 Informed consent for UASC 148 7.2 Case management 153 7.2.1 Establishing and supporting case management systems 153 7.2.2 Implementing a case management approach 154 7.2.3 Prioritization 155 7.2.4 Individual case assessment 157 7.2.5 The UNHCR best interests procedure 157 7.2.6 Case closure after follow-up 160 7.3 Information management systems 161 7.3.1 Inter-agency and organization-specific information management systems 163 7.3.2 Data analysis 165 08 175 Identification of UASC 8.1 Promoting consistency when identifying UASC 171 8.1.1 Applying definitions within the local context, culture and levels of vulnerability 171 8.2 Measures to locate and identify UASC and record