IN THE BLIND SPOT - SOS Children's Villages International
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IN THE
BLIND SPOT
Documenting the situation
of children without parental care
or at risk of losing it
The family is the fundamental group
of society and the natural environment
for the growth and well-being of all its
members, in particular children
un convention on the rights of the child
1
Contents
Executive summary | 4
1 Introduction | 7
2 Methodology and limitations | 9
Limitations | 10
3 The situation of children without parental care or at risk of
losing parental care – a web of rights violations | 11
Fragmented documentation, policies and interventions pose multiple challenges | 11
Multiple risk violations in complex interplay | 12
Governance and children without parental care or at risk of losing parental care | 13
Poverty | 19
Orphanhood, HIV/AIDS, abandonment and neglect | 19
Children with disabilities | 20
Child labour | 20
Early marriage and childbearing | 21
War, conflict and natural disasters, children deprived of freedom | 22
Violence | 23
Child-headed households | 23
Children in institutional care | 23
Children in street situations | 24
4 Investments pay off | 25
Effective interventions in combination with integrated and context-specific
child protection systems | 27
5 Children without parental care or at risk of losing parental care as a target group
in the international and Norwegian development agenda | 28
THIS REPORT WAS WRITTEN BY PIA LANG-HOLMEN OF PIA LANG 6 Conclusions and recommendations | 30
CONSULTING FOR SOS CHILDREN’S VILLAGES NORWAY. THE FINDINGS,
Conclusions | 30
INTERPRETATIONS AND CONCLUSIONS EXPRESSED IN THIS PAPER ARE THOSE
OF THE AUTHOR AND DO NOT NECESSARILY REFLECT THE POLICIES Recommendations | 31
OR VIEWS OF THE SOS CHILDREN’S VILLAGES NORWAY. 7 List of references | 35
COVER PHOTO: JENS HONORÉ. Annex 1 | Child statistics across 12 focus countries | 37
PHOTO PAGE 5: TESSA JOL. PHOTO PAGE 7: BJØRN-OWE HOLMBERG Annex 2| Definitions of “vulnerable children” | 41
DESIGN: JOHANNE HJORTHOL
Executive summary
In 2009, the UN General Assembly adopted the Guidelines to the development of countries and continents for future
for the Alternative Care of Children, with the basic rationale generations. In particular, it has been found that investing
that “Every child and young person should live in a supportive, in early childhood programmes for the youngest children
protective and caring environment that promotes his/her full from low-income families have the highest return on
potential. Children with inadequate or no parental care are at investment. Such programmes can lead to benefits later in
special risk of being denied such a nurturing environment.” life in terms of cognition, language, socio-emotional health,
Early experiences and the environments in which children education, and the labour market5 and hold the promise of
develop during their earliest years can have a lasting impact overcoming social disadvantages and breaking the interge-
on their lives, and the more risks they are subjected to, the nerational transmission of poverty.6
higher is the negative impact on their development.1
A common myth suggests that children without parental
Many of the milestones of the Millennium Development care are mostly orphans and living in institutions. However,
Goals (MDGs) have been reached, and children in general the opposite is true: more than 80 % of children living in
have their rights fulfilled to a higher degree than before. institutions have one or both parents alive,7 most of the
However, even with an equity focus,2 and children being at children entering SOS care in 2014 were not orphans,8 and
the centre of the UN 2030 Agenda for Sustainable Develop- the same is true for the majority of children in street situa-
ment for the next 15 years, children without parental care tions.9 Children without parental care may be found among
or at risk of losing it might continue to fall behind. child workers, children in street situations, in elderly-led or
child-headed households, in kinship or community care, in
The main reasons are 1) the blackboxing of “vulnerable foster families, residential facilities and institutions, they
children”, where there is a lack of definition and documen- may be on the move, in armies or guerrillas, in marriages or
tation concerning what constitutes the particular vulne- as mothers, amongst victims of trafficking, sexual exploitati-
rabilities for each individual child; 2) The documentation on or in organised crime networks. The two characteristics
of causes and consequences of losing parental care is most of them have in common are 1) the complex multitude
scarce3; 3) Targets, monitoring and evaluations are focused of rights violations that contribute to 2) a high risk of furth-
on singular issues, which may jeopardize a more holistic er rights violations, where these children lose their potential
approach to analysis and interventions that would benefit to participate in and be productive members of society.
children’s development. The use of household surveys
means that children who are without parental care, and In 2009, at least 24 million children lived without parental emergencies. With adequate support and child protection Almost all countries in the world have ratified the UN Con-
are not part of a household, become invisible in policies care – 1 % of the global child population.10 In 2015, 220 mil- systems in place, many of these causes could be eliminated.12 vention on the Rights of the Child, and many have legislation
and interventions and for statistical purposes. Failing to lion children – every 10th child – lived without parental care in place. Even so, it seems legislation is often unconsolidated,
understand their situation, and to provide adequate support or were at risk of losing parental care.11 The web of rights Across the 12 countries prioritised in Norwegian de- uncoordinated, fragmented, poorly enforced and under-
to families at risk of breaking down and children who have violations can be described as: Poverty and insufficient velopment aid,13 the documentation on children without funded.14 There are low levels of investment in children in
lost the supportive, protective and caring environment that income, poor health or death of one or both parents, parental care or at risk of losing it varies considerably. For general, and in child protection and prevention mechanisms
promotes his/her full potential that all children have a right socio-cultural factors such as single parenthood and early some countries, virtually no information can be found in particular, as well as in child-sensitive justice, support,
to, can result in stalling the development or even reversing marriage, psychosocial factors, violence and abuse, and poli- regarding children’s situation in general; others have not report and complaint mechanisms.15 The causes are often
the achievements of the last 15 years.4 tical and economic factors such as war, conflict and natural reported since before the year 2000, or they do not report identified as weak leadership in terms of implementation
on indicators that are vital for assessing children’s well- of legislation, planning and coordination; low financial and
Investing in the most disadvantaged children, giving them being. As a result, the situation for children in general in human resources set aside for appropriate care for children;
the possibility to develop in a nurturing environment to some of these countries, like Haiti, Myanmar, Ethiopia and lack of data and information to inform evidence-based
5 IEG Working paper 2015/3 ‘Later impacts of Early Childhood Interven-
their full potential, can give a return on investment of up tions: A Systematic Review’ and ACPF ‘The African Report on Child
and Tanzania, and for children without parental care or planning and policy-making.16 Where interventions are
to US$4-10 for every US$1 invested. Giving every child the Wellbeing: Budgeting for Children’ 2010 at risk of losing it in particular, is unknown. The regional implemented, lack of knowledge and understanding of their
possibility to reach their full potential, they can contribute 6 https://ieg.worldbankgroup.org/evaluations/wb-support-early-child- and even national variations call for context-specific situation means the effect on this particular target group
hood-development interventions and policies. might be low.17
7 Save the Children ‘Keeping children out of harmful institutions’ 2009
1 Harvard University, Centre of the Developing Child ‘Five numbers to 8 SOS CVI ‘The Situation of SOS Children’s Villages Target Group’, 2015:
remember about early childhood development’ 2009 both Family Strengthening Programmes and Family-based care
2 UNICEF For every child a fair chance 2015 9 UN OHRC ‘Protection and promotion of the rights of children working 14 UN ‘Towards a World Free from Violence’ 2013
3 USAID et al. ‘Household Economic Strengthening in Support of Preven- and/or living on the street’ (2012) 15 Ibid: Only 24 % of the countries responding had financial or human
tion of Family-Child Separation and Children’s Reintegration in Family 10 Every Child ‘Missing: children without parental care in international 12 UNICEF ‘For every child a fair chance’ 2015 resources allocated to address violence against children
Care’ 2015 development policy’ 2010 13 Afghanistan, Haiti, Mali, State of Palestine, South Sudan, Somalia, Ethio- 16 SOS CVI et al. ‘Drumming together for change’ 2014
4 UNICEF ‘For every child a fair chance’ 2015 11 SOS CVI ‘Situation of SOS Children’s Villages Target Group’ 2015 pia, Malawi, Myanmar, Nepal, Tanzania and Mozambique 17 See Annex 1 for an overview of the data collected for the 12 countries
4 5RECOMMENDATIONS
To ensure that children’s right to a nurturing upbringing is fulfilled, giving them the possibility to develop
to reach their full potential and to contribute towards sustainable development as full members of society,
further efforts are needed to place children’s rights at the centre of bilateral andmultilateral cooperation,
governance and funding.
1 In-depth knowledge on the child population,
in particular vulnerabilities, and national
policy frameworks is essential for targeted indi-
3 Placing children at the centre of “good
governance” from global to local level:
vidual and global development initiatives: All stakeholders should place children’s rights and needs
at the forefront of advocacy and policy-development;
International bodies and donor countries should de- Before receiving political support, funding, collaboration
mand that countries with which they cooperate provide or interventions, governments should provide evidence
in-depth knowledge of their child population; Where that they have in-depth knowledge of children’s situation,
such knowledge does not exist, fund knowledge-gath- with particular attention to children without parental care
ering in this area; Make data collection on children a or at risk of losing it, relevant legislation, policies and fund-
top priority in bi- and multilateral cooperation, making ing or that there are concrete plans for developing such
sure that no groups are forgotten; Ensure that they structures; Target and measure successful implementa-
themselves have sound knowledge of the child popu- tion of initiatives, legislation, policies, and interventions
lation and national policy frameworks before providing in terms of qualitative outcome for individual children,
support, cooperation and funding; Make certain that rather than (just) quantitative outcomes for the national
interventions are knowledge-based, and that all children government, external donor or global community, where
are reached; Support UNICEF and UN Member States special attention should be given to children without
in collecting evidence on children’s well-being. parental care, who might be accounted for and therefore
risk losing out of interventions on singular issues.
1 | Introduction
2 Coordinated efforts and long-term,
knowledge-based policies are key to end
multiple rights violations against children:
4 Further quantitative and qualitative re-
search is needed on the situation of children
without parental care or at risk of losing it: The family is the fundamental group of society and the In 2009, the UN General Assembly adopted Guidelines
natural environment for the growth and well-being of for the Alternative Care of Children. The Guidelines are
International organisations and policy-makers must While the aim of this report has been to provide all its members, in particular children recommendations to governments for fulfilling the UN
coordinate their efforts in policy- and guidance devel- documentation on the situation for children without UN Convention on the Rights of the Child Convention on the Rights of the Child Article 20. The basic
opment, data collection and interventions, and place parental care and reflecting on the international rationale behind the Guidelines is that “every child and
children’s right to a nurturing upbringing to the heart of attention these groups of children receives, this report The UN Convention on the Rights of the Child is the most young person should live in a supportive, protective and
bi- and multilateral cooperation and policy-making at only scratches the surface. Further research is needed rapidly and widely ratified international human rights tre- caring environment that promotes his/her full potential.
global, regional and national level; With a special focus on: The particular vulnerabilities of children without aty in history, placing the family at the centre of children’s Children with inadequate or no parental care are at special
on sustainable and long-term goals and funding and parental care or at risk of losing parental care, where the development. A nurturing caregiver is considered the most risk of being denied such a nurturing environment.”19 Chil-
knowledge-based interventions, making global goals Norwegian government should fund and ensure such important factor in a child’s development of cognitive, dren without parental care are defined as “all children not in
and commitments into concrete actions must be made information exists for the 12 focus countries and other physical and emotional skills, giving them the absolute the overnight care of at least one of their parents, for whatever
a top priority for all stakeholders: supporting legislative countries which receive funding and support; Analysing best possibilities to thrive and reach their full potential. reason and under whatever circumstances“, a definition that
reviews in views of fulfilling children’s rights; provision existing statistical information, linking parameters to get Early experiences and the environments in which children will be used throughout this report.
of universal and free basic services and birth registra- more information on relevant vulnerabilities; Examining develop during their earliest years can have a lasting impact
tion; accountable alternative care options; support to the role that international institutions and external on their lives, and the more risks they are subjected to, the Although it is generally acknowledged that the root causes
families; early childhood development programmes; governmental and non-governmental donors and higher is the impact on child development.18 Children with of children losing parental care are a complex set of mul-
employment opportunities; and engaging local commu- service providers play in fulfilling children’s rights, where out parental care are in general considered more vulnerable tiple rights violations, and that the consequences of losing
nities, families and children in policy-development and Norway should evaluate the effect of their own policies than children in a family. parental care can be detrimental to a child’s development
implementation. and interventions; Coordinated investigation into the
global implementation of the UN Guidelines for the 18 Harvard University, Centre of the Developing Child ‘Five numbers to
Alternative Care of Children in Member States. remember about early childhood development’ 2009 19 UN Guidelines for the Alternative Care of Children 2009
6 7both in the short and the long term, their situation as a
whole appears poorly documented.20
However, what constitutes “the most vulnerable children”
remains largely undefined. 2 | Methodology and limitations
SOS Children’s Villages (SOS CVI) have worked with provi- Understanding the causes and consequences of losing
ding alternative care for children since 1949, and now reach the “supportive, protective and caring environment that
almost 2,3 million people across 135 countries with care, promotes his/her full potential”, for the individual child and
education, health services and emergency response.21 They for society, is urgent for reaching the SDGs. While children This report is based on a desktop review of a number of Several databases have been explored for relevant statistical
estimate that 220 million children – every 10th child - live in general have had their rights fulfilled to a higher degree international strategies, reports and statistics, which are all information, most notably the UNICEF Multiple Indicator
without parental care or are at risk of losing it.22 The than before, the most vulnerable children continue to fall publicly available. Cluster Surveys and the State of the World’s Children re-
NGO Missing Children UK in 2009 estimated that there behind.27Only with a good knowledge-base can the interna- ports29. Across all data collection, the most recent figures have
were, at the very least, 24 million children living without tional development community provide adequate support In order to make a valid assessment of the situation for been sought to provide the best information on the situation
parental care, or 1 % of the world’s child population.23 to families at risk of breaking down and children who have children without parental care or children at risk of losing for these children at the moment. The Millennium Develop-
150 million children worldwide have lost one or both lost parental care. Failing to provide these children with it, analysis of the characteristics of the two groups has been ment Goal Indicators30 were also considered for analysis, as
parents.24 However, while some of these overall estimates adequate measures can result in stalling or even reversing carried out in terms of what causes their situation and were global databases from different organisations. However,
exist, the real number of children living without parental the development that one has achieved during the last 15 what are the effects and consequences of their situation. most of these were found not to be relevant to children
care appears unknown due to lack of knowledge of their si- years. Investing in the most disadvantaged children, on the One main challenge has been the variations in terminology without parental care or at risk of losing it. Additional sources
tuation. Furthermore, the root causes of losing parental care other hand, giving them the possibility to develop in a nur- used to describe children in vulnerable situations, where have been sought and are referred to throughout this report.
and the consequences for these children, who are deprived turing environment to their full potential, can give a return some might partly cover the situation of children without
of the “supportive, protective and caring environment that on investment of up to US$4-10 for every US$1 invested.28 parental care or at risk of losing it, illustrated below GLOBAL DATA COLLECTION
promotes his/her full potential”, are not well known. ON CHILD PROTECTION IN 2013
To document TERMINOLOGY DESCRIBING CHILDREN IN
They may be found among child workers, children in street VULNERABLE SITUATIONS 104 GOVERNMENTS
a lack of documentation 47 collected some types of data on child
31+10+16+47=
situations, in elderly-led or child-headed households, in
kinship or community care, in foster families, residential The main purpose of this report is to contribute to a more protection
facilities and institutions, they may be on the move, in complete picture of the situation for children without 16 collected general data, but not spe-
armies or guerrillas, in marriages or as mothers, amongst parental care or at risk of losing it. In particular, investigates cific to children
victims of trafficking, sexual exploitation or in organised whether documentation is available or not, and whether 10 collected no data.
crime networks. The two characteristics most of them have these children are amongst the target groups of Norwegian 31 did not respond
25+75
in common are and international development policies. This report attempts
to provide more knowledge about the following issues: Globally, US$6 mill was spent on data
1) the complex multitude of rights violations that contrib- collection.
ute to • What are the root causes and consequences of living
2) a high risk of further rights violations, where these without parental care? 3 out of 4 countries carried out periodic
children lose their potential to participate in and be reviews.
productive members of society. • What are the potential benefits of investing and the 1 out of 4 countries had routine adminis-
potential consequences of failing to invest in these trative data collection and analysis.
During the last 15 years, the global community has worked children?
to achieve the Millennium Development Goals (MDG).25 Source: UN Towards a World Free from Violence 2013
Children in general and vulnerable children in particular • How are the UN Guidelines and alternative care provi-
are at the centre of the UN Agenda 2030 and the Sustai- sions in line with the Guidelines implemented? The Norwegian government has selected 12 countries that
nable Development Goals (SDG)26 for the next 15 years. will receive particular attention in their development policy,
• How do the international community and the Norwe- six of which are considered weak states: Afghanistan, Haiti,
gian government invest in this group of children? Mali, the State of Palestine, South Sudan and Somalia, and
20 USAID et al. ‘Household Economic Strengthening in Support of Preven- six that are under development: Ethiopia, Malawi, Myanmar,
tion of Family-Child Separation and Children’s Reintegration in Family While not going into details on all of them, they have been Nepal, Tanzania and Mozambique.31 In order to go in depth
Care’ 2015
used for this study, with particular focus on governance: on the issues at hand, these 12 countries, and four in partic-
21 SOS CVI ‘Facts and figures’ 2014
22 SOS CVI ‘Situation of SOS Children’s Villages Target Group’ 2015
examining the national legal framework and implementation ular: Afghanistan, Nepal, Malawi and Tanzania, have been
23 Every Child ‘Missing: children without parental care in international of policies regarding children and specific risk factors to chosen for examination. Annex 1 provides a detailed set of
development policy’ 2010 children. statistical information for the 12 focus countries.
24 SOS CVI ‘Situation of SOS Children’s Villages Target Group’ 2015
25 http://mdgs.un.org
26 In the UN 2030 Agenda for Sustainable Development, children rights
Information on the situation of children without parental
and children in vulnerable families and situations are of utmost impor- care or at risk of losing it has been sought throughout
tance. The Member States will “strive to provide children and youth multilateral organisations, a range of NGOs and research 29 Available from http://www.unicef.org/sowc/ and http://www.unicef.org/
with a nurturing environment for the full realisation of their rights and statistics/index_24302.html
institutions as well as the Norwegian governments’ white
capabilities”, including providing cohesive communities and families 30 http://www.unicef.org/statistics/index_24304.html
papers, strategies and reports. 31 http://www.aftenposten.no/nyheter/uriks/Regjeringen-kutter-ut-32-bi-
(Art 25). The goals include implementing social protection systems for 27 UNICEF ‘For every child a fair chance’ 2015
all, including for the poor and the vulnerable. 28 Investments in deprived children is the topic of Chapter 4 standsland-7737203.html
8 93 | The situation of children
The UN Development Assistance Frameworks (UNDAF)32 the databases are not updated with new information.37
and the UN Committee of the Rights of the Child (referred Across the 12 focus countries, the documentation varies
to as the CR Committee, not to be confused with the UN considerably and in some countries it is almost impos-
without parental care or at
Convention of the Child, UNCRC)33 periodic review reports sible to assess the situation for children in general, let
and conclusions have been taken into account, as well as alone for the children without parental care or at risk
country-specific policies and strategies. To understand the of losing it. In fact, these limitations of documentation
risk of losing parental care
situation for children without parental care and at risk constitute one of the main challenges identified in this
of losing it, a wide range of sources have been taken into report
consideration.
• Commonly cited figures sometimes lack a consistent
Limitations
Certain factors have limited the depth and scope of the
background. For instance, the very basis for claiming
that 8 million children live in institutions is insecure
and outdated.38 This report has not examined the origi-
– a web of rights violations
analyses in this report: nal sources for all figures.
1) This report does not represent a complete picture of 3) Some of the issues relevant to the assessment of the
the vulnerabilities associated with losing parental care, situation for children without parental care or at risk Fragmented documentation,
nor a complete picture of how the children without of losing it are related to the dynamics of development “…There are stark contrasts between global advances
parental care and families at risk of breakdown are aid and long-term foreign policy. The legal framework,
policies and interventions pose on the one hand and the urgent, unmet needs of the
targeted by different organisations and national and priorities and governance of a country is highly relevant multiple challenges world’s most vulnerable children on the other”
local authorities. The different issues discussed in this to the prevention of children falling out of parental care A range of policies, strategies, reports, toolkits, standards For every child, a fair chance. UNICEF November 2015
report are all complex and separate research areas, in and how these children are provided for by the states and guidelines examined for this report, show that there is
which the author neither has complete nor in-depth according to their commitment to the UNCRC. The a high attention to children’s welfare and children’s rights. Consequently, focusing on for instance HIV/AIDS or-
knowledge. In addition, time constraints have made it international community, collaborating states and exter- However, the multitude of documents indicates a relatively phans, or “orphans and vulnerable children/OVC” might
impossible to span all relevant sources. nal donors play an important role, since the support a high degree of fragmentation. The result fo this apparent be inadequate to reach children without parental care or at
country receives can be tied to different developmental lack of coordination is two-fold: risk of losing it. In the long run, the effect of this miscon-
2) There are a number of challenges related to the statisti- goals or the SDGs. Assessments are made in these areas, ception and of not defining the causes of risks to children
cal information: but only on the basis of publicly available documents 1) It can be a challenge for national governments, donor in a holistic and comprehensive manner might lead to
and, due to time constraints, not in a thorough manner. countries and receiving countries alike to determine non-sustainable targets, interventions and achievements.42
• The term “vulnerable children” is most commonly used, Indeed, one of the recommendations in this report is which strategies, policies and guidelines should be
but in most cases without definition.34 Where they that further studies in this area are needed. given the highest importance in designing national Children without parental care are often defined according
exist, definitions depend on the issue at hand or the policies and interventions to reach children in general to the contexts in which they are outside of care. This is
settings where the children are. 4) Finally, the intrinsic complexity of the multiple rights and children without parental care or at risk of losing it reflected in development programming, where focus on
violations causing loss of parental care and its conse- in particular certain characteristics of their situation might lead to
• CData collection and statistical information are often quences are tied together – hence, the issues can be effectiveness in tailoring specific programmes. However, it
based on household surveys.35 However, children causes, effects and consequences all at the same time. 2) It can be a challenge to reach the children without can also contribute to technical silos that inhibit sharing of
without parnetal care or at risk of osing it are in many parental care and families in need of support with knowledge, tools and effective strategies, leading to ineffici-
cases not part of a household, appear not to be consid- appropriate initiatives, depriving them of their basic ent use of resources. Most importantly: it risks losing sight
ered a target group, and hence risk being consistently rights and services, in some cases to such a degree that of children in need of support.43
forgotten. The statistical information available is scarce, their development might be seriously jeopardized.
not gathered in one place, and is rarely presented in a The MICS indicators44 on “children living without one or
coordinated and consistent manner. While UNICEF As the list of terminology on page 7 suggests, describing both parents” and “children with one or both parents dead”
aims at ensuring statistical validity, the national frame- the situation for children without parental care or at risk give an indication of how many children are affected, but
work for performing data gathering may vary, making of losing it is not straight-forward. A common myth do not reveal the details of their situation. Of the 12 focus
comparison difficult. While in abundance, most indica- suggests that children without parental care are mostly countries, only Mozambique has surveyed children with
tors are not relevant for assessing the children without orphans and living in institutions. However, the opposite is disabilities.45 The State of the World’s Children46 reports
parental care or at risk of losing it,36 and in some cases true: more than 80 % of children living in institutions have provide estimates concerning the number of orphans by
one or both parents alive,39 most of the children entering HIV/AIDS and other causes.
SOS care in 2014 were not orphans,40 and the same is true
32 https://undg.org for the majority of children in street situations.41
33 http://www.ohchr.org/EN/HRBodies/CRC/Pages/CRCIndex.aspx
34 See Annex 2 for an overview of terminologies describing children in 37 http://data.worldbank.org/indicator, where figures are not updated with 42 UNICEF ’For Every Child, a Fair Chance’ 2015
vulnerable situations by different organisations the latest figures from UNICEF MICS databases. 43 USAID et al. ‘Household Economic Strengthening in Support of Preven-
35 MICS and other surveys are often based on household surveys 38 For instance, many policies and reports refer to at least 8 million children 39 Save the Children ‘Keeping children out of harmful institutions’ 2009 tion of Family-Child Separation and Children’s Reintegration in Family
36 For instance, the World Bank presents almost 60 indicators relating to living in institutional care, a figure that was established in the 2006 40 SOS CVI ‘The Situation of SOS Children’s Villages Target Group’, 2015: Care’ 2015
Education alone, but none of these seem relevant to children without UN Study on Violence Against Children. However, when looking more both Family Strengthening Programmes and Family-based care 44 http://www.unicef.org/statistics/index_24302.html
parental care, see http://data.worldbank.org/indicator. Other databases closely at the UN Study, the source of this figure seems to be an article 41 UN OHRC ‘Protection and promotion of the rights of children working 45 See Annex 1 for statistics on children across the 12 countries
that have been examined are: Eurostat, OECD, ILO, WHO. Websites from 1995 cited in a 2003 Save the Children report. and/or living on the street’ (2012) 46 http://www.unicef.org/sowc/
10 11CAUSES OF FAMILY BREAKDOWN: OVERWHELMED FAMILIES STRUGGLE TO COPE
ACROSS 12 FOCUS COUNTRIES:
-1 out of 10 children are living without one or both parents, ranging from 0,6 % Persistent discrimination, poverty
in the State of Palestine to 16,7 % in Malawi, in total 1,446 million children. For some and social exclusion, HIV/AIDS, early
countries, like Tanzania, this figure is not found. marriage, natural disasters, war and
internal displacement alongside
-1 out of 10 children have lost one or both parents, ranging from 2,3 % in the experiences of abuse, neglect and
State of Palestine to 11,6 % in Malawi, in total 1,021 million children. Again, the infor- violence Unstable situations
mation is not available for all countries, like Tanzania. and violent
+ • •
Source: UNICEFs Multiple Indicator Cluster Surveys, Annex 1 Leave the families circumstances,
overwhelmed and weak family ties, low
struggling to cope access to education,
low educational
Multiple risk violations in complex This report shows that an interplay between the following
Society’s failure to provide economic performance, weak
factors comprise the multiple risk violations which surround
interplay support, child care assistance, friendships
children without parental or at risk of losing parental care:47
parental advice and support,
Common for most children without parental care is the assistance in handling parents’ abuse
fact that they are deprived of, or risk being deprived of, the Poverty: where families are extremely under-resourced, or mental illness, child protection
most important structure of development and the most struggle to have a regular income and to provide for their services and basic services
basic4.2children’
Problems s right, a nurturing
experienced family. children
by vulnerable However, all the children, leading parents to abandon their children or
evidence examined for this report suggests that there is no place them into alternative care, believing that this is the
Figure 2 presents statistical significant associations between the vulnerability determining factors and higher levels of vi-
singlechild
olence, factor that
labour, makes
early children
marriage, anddebut
early sexual families vulnerable.
and teenage pregnancy and lower only way
levels to provide
of education education and other basic services for
attendance
Rather,
and healthinterplay between
outcomes. These different
statistical factors
significant has different
associations come from nationwide, their children.household
representative Poverty sur-
accounted for 2 out of 3 households
veys. Dueon
effects to data gaps or and
families the numbers
children.in surveys
The being
Malawitoo small, not all associations
National Plan could
whobeentered
tested, soan
if noSOS
connection
Family Strengthening Programme in The way these factors influence each other varies according Governance and children without
is presented in this figure, this does not automatically mean that there is no association [1]. 48
of Action (NPA) for Vulnerable Children 2015-2019 illus- 2014. to region, country and local community. The main reasons parental care or at risk of losing
trates how
Figure the interplay
2. Overview is seen
associations in thisvulnerability
between
determining factors and effects of vulnerability
country: for entering into alternative care reported by former SOS parental care
Death of parents and poor health outcomes (including children51 were the death of the mother (almost half the
”We are the ones facing the biggest
Vulnerability physical and mental health) for children and their care
problems here because we have no
children), the death of the father (1 out of 5 of the chil-
Effects of vulnerability
determining factors givers
parents andand
sufferlack
moreof affordable
than others. health facilities, causing dren) and poverty. However, the loss of a father was more “The UN Convention on the Rights of the Child requires
Dayorphanage
after day, we or leading parents to place their children into
go house by house important than the loss of the mother in Asia. This might State Parties to adopt all appropriate legislative,
to ask for piece-work.” 49
Low wealth Violence alternative care. HIV/AIDS is a major contributor. In be explained by national situations or traditions, where in administrative, social and educational measures to
(Vulnerable children 6 -12 years old
2013, almost 18 million HIV/AIDS orphans were reported
in Chiradzulu) Afghanistan, children are sometimes abandoned by their safeguard every child’s fundamental rights”
Living with 1 or in total worldwide, where Sub-Saharan Africa accounted mothers, who traditionally have to marry a relative of their UN: Towards a World Free from Violence 2013
Child labour
no parents “When
for 15themillion
children of gothese.
to school
50
late husband, but cannot bring her children with her.52 In
very dirty because we cannot af-
ford washing powder to wash their
Europe the main reason for admission was parental sub- Governance can be defined as “the traditions, mechanisms
Low household
education Early marriage Socio-cultural
ragged uniforms, theyfactors:
are being migration, single parenthood, fa- stance addiction, death of the mother and child abuse, and and institutions by which authorities exercise and manage
milyatbreakdown,
laughed divorce
by the better off children.and remarriage, teenage pregnan- the children were much older when they came into care. their affairs, resources and policies in conjunction with the
This discourages them so much that
Single or double
Early sexual intercourse cy, gender inequalities and discrimination, social exclusion. The regional, national and even local variations call for interests of their constituents”, including both governmen-
orphan some of them quit school.” (Care
givers in Chiradzulu) context-specific interventions and policies.53 tal authorities as well as private and social actors.54
Psychosocial factors: Violence and abuse, exploitation,
HIV infected Teenage pregnancy
“The teacher sends
substance children
abuse andwithout
addiction, parents' own experience However, for some of the 12 focus countries, like Haiti, My- Good governance is defined in terms of the mechanisms
uniforms away.”
with institutional care and incarceration of parents. anmar, Ethiopia and Tanzania, the documentation on which and processes needed to promote effective governance and
(Vulnerable children 13 – 18 years
old Violence and abuse accounted for 73 % of children in SOS such context-specific interventions and policies could be achieve the goals of development.55 Good governance is a
Disabled Conflict with law
in Mangochi)
Villages in Venezuela and 88 % in Croatia. built is missing. The situation for children in general, and priority for the Norwegian government56 and the global
“We need to work very hard to for children without parental care or at risk of losing it in community alike, focusing on such issues as anti-corrup-
Low education attendance
achieve what we want in life, we
Political and economic factors: armed conflict, natural
need to get better education and
particular is unknown due to lack of data. tion, human rights in detention facilities, peace-building,
disasters,
good jobs in the inadequate
future.” government structure and services. contributing to stability and accountable institutions and
Low health outcomes
(Children affected by HIV/AIDS The situation for children across the 12 focus countries is legislation, capacity building and developing an investment
(CABA) 6 – 12 years old in Lilongwe)
illustrated on page 14.
48 SOS Latin America and the Caribbean ‘Causes and risks of losing
Source:
In Malawi National
the qualitative researchPlan of Action
that for Vulnerable
was conducted duringChildren 2015-2019
the situation analysis, vulnerable children
parentaland care
care giversAmerica
in Latin re-af- and the Caribbean’ 2015, UNDAF for
firmed the framework regarding the vulnerability determining factors, emphasizing on orphans, HIV infected
Afghanistan or affected
(2015-2019), CR Committee Conclusions on Tanzania
The Malawi
children and NPA defines
children withvulnerabilities in terms
disability as being the of children
most aged 0-18
vulnerable. who are:
Children and care givers both2015,
from reported
UNDAFthatfor
children
Nepal 2013-2017, CR Committee country report 54 Better Care Network et al. ‘Protect my future. The links between child
Livingwith
living in a household ranked
foster parents hadin
a the bottom three
disadvantage whenwealth quintiles;
compared Not livingchildren in theMalawi
to biological same household withNational
2014, Malawi regard Plan of Action for Vulnerable Children protection and good governance’ 2013
with
to either parent;
household choresLiving
and in a household
access to school with adults with
materials. no education;
Vulnerable Having
children and care givers 2015-2019
also re-affirmed many of the 51 SOS CVI ‘Tracking footprints’ 2010 55 World Bank ‘What is Governance?’ 2013
lost one or both
consequences ofparents. In addition,
vulnerability in termsliving withhaving
of not HIV and living
access towith a disability
basic commodities such 48 asSOS
food, clothes,
CVI shoes, school
‘The Situation of SOS Children’s Villages Target Group’ 2015 52 UN CR Committee conclusions on Afghanistan periodic review 2011 56 Sundvolden-erklæringen, Norwegian government political platform.
materials
are combinedor proper shelter.
with the For example,
four other factors, sonotashaving
to addclean
a layerschool
to the uniforms
other results in not being able to go to school.
49 Ibid 53 SOS CVI ‘Tracking footprints’ 2010 October 2013
Vulnerable children
factors rendering also reported
a child to have limited access to health services due to lack of transport money. Lack of food
vulnerable. 50 UNICEF ‘State of the World’s Children 2015’, figures by USAID
can cause malnutrition but can also lead to child marriage (so that parents or care givers have one mouth less to feed).
12 13
2015 - 2019 13THE SITUATION FOR CHILDREN ACROSS 12 FOCUS COUNTRIES
friendly industry environment.57 While bilateral dis-
CHILD POPULATION: Half of the STUNTING: A third (37 %) of the
cussions on government might not always be publicly “In the absence of
accounted for, there appears to be relatively few traces of
appropriate child protection
population is under 18 years (52 %), children are stunted, with Afghanistan
ranging from 35 % in Myanmar to 54 % in having the highest rate of stunting in advocacy for child rights governance in the Norwegian
Afghanistan. the world with almost 60 % government’s bilateral work, even though it has been sup-
14 % are below 5 years old, ranging from
portive of the eradication of child marriages in for instance policies and restorative
Malawi.58
10 % in Myanmar to 17 % in Mali.
Source: UNDAF for Afghanistan (2015-2019)
justice services designed to
The way a country provides for its children in terms of
laws, policies and services is important for how children’s tackle the root causes [of
rights in general are ensured, and how children who have
VACCINATIONS: 2 out of 5 children between 12 and 23 lost parental care or are at risk of losing it are cared for. The violence] and enable victims
months had been fully vaccinated (43 %). European Commission defines integrated child protection
systems as ”the way in which all duty-bearers and system to be rehabilitated, the costs
Early childhood education: 1 in 5 children attended early components work together across sectors and agencies sha-
childhood education (18 %). In Afghanistan, only 1 % of ring responsibilities to form a protective and empowering to societies remain high.”
children attended early childhood education environment for all children.”59 UN Committee on the Rights of the Child, General comment 13
However, UNICEF has shown that few governments have
actually set aside funding for interventions regarding Key challenges to the implementation of the UN Guidelines
child protection, and in 2013, only 26 of 104 countries had and adequate interventions include weak leadership in go-
EARLY MARRIAGE: 2 out of 5 girls INADEQUATE CARE: 1 out of 3 children across 7 of the 12 financial or human resources allocated to address violence vernment in terms of implementation of legislation, plan-
were married before turning 18 (41 countries had been left with inadequate care, ranging from against children. Only a third of the world’s countries ning and coordination; low financial and human resources
%), 1 in 10 before they were 15 (11%), 14,3 % in the State of Palestine to 40 % in Afghanistan periodically evaluate child protection policy structures set aside for providing appropriate care for children; lack of
and 1 in 4 girls had a child before
to assess progress and results and subsequently allow for data and information to inform evidence-based planning
turning 18 (26 %).
adjustments, and a third of the countries never do this.60 and policy-making.63 This might result in children without
Defined by a child being left alone or in the care of another child 10
parental care or at risk of losing it being provided for by
years or younger for one or more hours during the last week
The UN Guidelines for Alternative Care of Children a range of NGOs operating without licences, standards or
recommend national governments to “ensure that families oversight, consequently suffering further rights violations.
have access to forms of support to develop and implement
comprehensive child welfare and protection policies with a All the 12 countries prioritized by the Norwegian govern-
CHILD LABOUR: Every third child was involved in some view to prevent family separation and to provide children ment have ratified the UNCRC, and all of the four focus
kind of child labour. In Afghanistan 60 % of child labourers with adequate alternative care when needed, with the best countries have legislation in place aimed at ensuring child
were attending school, while in Mozambique 25 % and in interest of the child at the centre of processes.”61 In 2013, protection and ensuring that their rights and needs are
Somalia 29 % of child labourers were able to attend school. UNICEF reported62 that 58 countries have an Alternative met. Even so, many of these countries have not followed
Care Policy in line with the UN Guidelines, 121 countries up with child protection policies or services. Consequently,
have estimated data on children in residential care and 94 children’s rights are not ensured, and the children without
countries reported data on children in foster care. UNICEF parental care or at risk of losing it are not prioritized.
provided support to at least 38 countries to strengthen
aspects of alternative care work.
BIRTH REGISTRATION: Almost half of all the children had
been registered at birth, ranging from so few in Somalia that
this indicator was eliminated during the data collection, to 99
% in the State of Palestine. In some countries, it was found
that the registration rate varied considerably between the
VIOLENCE: Almost 4 out of 5 children had experienced
poorest households and the richest.
violence during the last month
57 Proposition no 1 (2015–2016) to the Norwegian Parliament (National
Budget) and the report on the national budget spending in 2015
58 https://www.norad.no/landsider/afrika/malawi/
159+141= 59 European Commission ‘Reflection paper in view of the 9th European
Forum on the rights of the child’ 30 April 2015. Duty-bearers are de-
scribed as the state authorities represented by law enforcement, judicial
PRIMARY EDUCATION: 3 out of 5 children were enrolled authorities, immigration authorities, social services, child protection
in primary education, ranging from 11 % in South Sudan to agencies. System components are described as laws, policies, resources,
procedures, processes, sub-systems
97 % in the State of Palestine. However, the rate to which On average, half of children who had lost one or both
60 UN ‘Towards a World Free from Violence’ 2013
children moved on to secondary education, varied from 20 parents attended school (53 %).
61 UN Guidelines for the Alternative Care of Children
% in Mozambique to 97 % in the State of Palestine
62 UN ‘Towards a World Free from Violence’ 2013 63 SOS CVI et al. ‘Drumming together for change’ 2014
14 15National frameworks for child
protection in four focus countries AFGHANISTAN MALAWI TANZANIA
The national situation in Afghanistan is regarded as Malawi has adopted relevant legal measures for child An overall lack of structures, systems and services to
Across the four focus countries, the information gathered posing multiple risks to the well-being of children.69 A protection,76 and has implemented a pilot Social Cash provide effective protection to children in Tanzania
mirror the fragmentation of the documentation available. legal framework is in place, but many laws contradict Transfer Scheme. Children without care are explicitly is identified.79 While a legal framework is in place,
Nevertheless, it can provide an overall picture of how the their commitment to UNCRC. Implementation is slow mentioned, and some of the provisions, targeted at there appears to be a low rate of implementation, due
country situation influences children’s vulnerabilities. due to lack of capacity and political will, insufficient ultra-poor households will probably work to prevent to insufficient resources, low coordination capacity,
resources, weak enforcement and leadership. While children losing parental care.77 There are plans to initiatives are not followed up with financial or human
there seems to be relevant provision in urban areas, provide 65 % of OVC households (with an emphasis resources, and the most vulnerable children were left
NEPAL the rural provision is low.70 The options for alternative of children affected by HIV/AIDS) with free basic behind. 80 There are an increasing number of children
Nepal is seen as a best practice example in terms of care are underdeveloped, leading to excessive insti- support by December 2016, and a goal to ensure living without parental care,81 but while HIV/AIDS
reaching the Millennium Development Goals, with an tutionalisation, where most care facilities are unregis- that these children are not falling behind in terms of orphans are described as among “the most vulnerable
explicit focus on “bringing all children of the country tered and not adequately monitored71 education. children”, children without care for other reasons are
progressively within the net of social protection”.64 A not particularly mentioned in the plans for the country.
number of legal instruments regarding the protection There are few comprehensive plans for children’s By 2019, 80 % of the vulnerable children in Malawi
of children, including orphans and disadvantaged rights and few plans in budgets, no plans for moni- should have access to essential quality services for There has been little focus on identifying and re-
communities are in place,65 as well as an approach to toring the allocation and impact of resources and a survival, and there are provisions for parent training sponding to children in need of protection from abuse,
support children without parental care, with emergen- general absence of a comprehensive data collection and training of local authorities in monitoring child violence and exploitation82 and corporal punishment
cy support to children, and a family reunification sys- system. In terms of justice, child victims of violence, protection in the communities. In addition, tangible is still justified in legislation. A People with Disability
tem. Even so, there is a lack of planning for facilities for abuse and exploitation are often prosecuted while the targets in terms of increasing the access to foster Act was passed in 2010,83 but albino children are still
children without parental care or at risk of losing it.66 perpetrators go free; domestic abuse has not been homes are formulated, and there are plans to enhance suffering from violence and discrimination, and there
criminalised, and if children are to run away, they are the quality of care provided in institutions and other are few systematic measures to eliminate the discrim-
Expenditure on social services increased from 4,3 % sometimes charged with criminal offence of prostitu- organisations trough supporting child placements and ination and root causes to violence against this group.84
in 2001-2002 to 22,9 % in 2007–2008. The number of tion or adultery, regardless of the situation.72 reintegration and implementing standards of quality
children in Early childhood development programmes for institutions.78 However, with this strong focus on An urgent requirement to increase and train personnel,
(ECD) increased by 24 % and special budget alloca- Due to “traditional values” limiting women and girls’ HIV/AIDS, there is a risk that children who have lost develop monitoring, referral and response systems,
tion is set aside for providing ECD to children from possibility to move about freely, their access to basic or risk losing parental care for other reasons will not strengthen district and national data collection and
deprived classes. Even so, in 2014, 1/3 of children services is jeopardized, which might lead to women receive the provisions they need. promote shared awareness at community and statutory
had access to early childhood education, with a gap treating their children and themselves with narcotic levels of children’s rights is identified.85
between rich and poor (67% vs. 14%). The government substances. This in turn might lead to addiction, low In terms of funding, the government institutions ap-
is implementing programmes to help persons with participation in education, violence, neglect and abuse.73 pear to have limited funds, and the majority of funding The legislation stipulates alternative or substitute
disabilities, but only 1 % of primary school students are therefore has to come from development partners, care, and guidelines for dealing with children who are
children with disability, so this has limited effect.67 Educational institutions, while supposedly free, ask NGOs and the private sector. deprived of the family environment are being devel-
parents for “voluntary contributions”, which limits oped, which will include periodic review and oversight.
The root cause for vulnerabilities considered to be tra- access to education by vulnerable children and fam- It seems that there is a system for issuing operating
dition, and a need for multi-faceted and crosscutting ilies.74 The country lacks a comprehensive system for licences. Nevertheless, a number of children's homes
interventions is defined.68 In the UNDAF for Nepal, protective social services for families and children, and operate without registration or adequate inspection,
children without parental care is not a primary target positive family coping mechanisms have been eroded with numerous cases of child abuse.86 Despite good
group, but many of the proposed interventions will also by poverty, war and displacement. intentions and reports, children continue to live in
benefit these children. institutions without any review of the placement.
All social service delivery systems in place are do- Poor coordination causes a lack of alternative care
nor-built and -provided, and are thus not sustainable services.87
in the long term, since they also experience instability
because of funding and staffing. The national health
system is not sufficient to meet these challenges,
79 UNDAF for Tanzania 2011-2015
where only 1/3 of the population has access.75
80 CR Committee periodic review/country report of Tanzania 2015, where
the ‘National Costed Plan of Action for Orphans and Vulnerable Chil-
dren’ (NCPA for OVC) 2007-2010, is described: extended to 62 Tanzania
Mainland districts, 160.000 children had received some kind of support.
69 UNDAF for Afghanistan 2015-2019 81 CR Committee conclusions on Tanzania periodic review 2015
70 UN CR Committee conclusions on periodic review of Afghanistan 2011 82 UNDAF for Tanzania 2011-2015
and UNDAF for Afghanistan 2015-2019 83 Tanzania ‘Long Term Perspective Plan’ from June 2012 (2011/2012-2025-
64 UN CR Committee periodic review/country report of Nepal 2014 71 UN CR Committee conclusions on periodic review of Afghanistan 2011 2026)
65 Nepal National Action Plan on Human Rights (2010-2013) 72 Ibid 76 Malawi ‘National Social Support Policy’ 2013 and ‘National Plan of 84 CR Committee conclusions on periodic review of Tanzania 2015
66 UN CR Committee periodic review/country report of Nepal 2014 73 Ibid Action for Vulnerable Children 2015-2019’ 85 UNDAF for Tanzania 2011-2015
67 Ibid 74 Ibid 77 CR Committee conclusions on Malawi 2014 86 CR Committee country periodic review report Tanzania 2012
68 UNDAF for Nepal 2013-2017 75 UNDAF for Afghanistan 2015-2019 78 Malawi ‘National Plan of Action for Vulnerable Children 2015-2019’ 87 CR Committee conclusions on periodic review of Tanzania 2015
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