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Child Protection in Emergencies andCPWG Coordination in Emergency Response in the Philippines

Beyond the first Three Months; Planning for Transition17-18 February 2014; Harold’s Hotel, Cebu City

Executive Summary

This two-day consultation was organized to review Child Protection Working Group (CPWG) Coordination, and plans for transition to the recovery phase and preparedness for future emergencies. Specifically, it also aimed to: (1) provide technical support/guidance to CPWG co-chairs; (2) reflect on Child Protection and CPWG lessons learned in the first three months of TY Haiyan emergency and Zamboanga humanitarian crisis; and (3) gather opportunities for strengthened CPWG cooperation with programme and other clusters, including recommendations for the way forward.

This consultation acknowledged that sub-national CPWG local government co-leads have already initiated varying degrees of transition towards integrating cluster coordination functions into their regular programming. However, support and guidance on this process, particularly from the National CPWG, would be crucial. It was also noted that the National CPWG should expand its coverage to include children in armed conflict.

Meanwhile, sub-national CPWGs have recognised the need for capacity building and continued technical assistance from the national CPWG to ensure that cluster functions and priorities are ingrained in the LGU investment plan, and are maintained as part of emergency preparedness.

Transition strategies of CPWGs should also be communicated to the Protection cluster and the GBV sub-cluster in each hub. Key recommendations include the plan to hire a roving CP coordinator to support the CPWG coordination hubs through the end of 20141. The need for ongoing Information Management (IM) support until the end of 2014 was highlighted. It was recommended that (a) government staff to be trained in IM to give institutionalized local support or (b) that a roving IM role for CP (either government or NGO partner) be established to support the coordination function. There were suggestions for products and tools that the CPWG IM team could create as a benefit to the whole group (i.e. a mapping of functional LCPCs/BCPCs). These ideas were welcomed and should be sent to the IM team (Umar Daraz and Megan Wieczorek) for design and follow up.

In future emergencies, it was strongly recommended to hold a mandatory orientation for Child Protection Cluster Coordinators to understand expectations and their role vis-à-vis Child Protection Programmes. It was also noted that a cluster work plan for CPWG should be developed at least within the first six weeks of an emergency. CPWG Coordinators and Child Protection Programme staff should share information and communicate regularly about their projects/updates, noting that this communication is essential to ensure the most effective emergency response programme design and delivery.

Day One – 17 February 2014

1. Introduction of Participants. The day started with introduction of participants. The workshop was participated by more than 25 DSWD regional officers, NGO child protection partners, CPWG coordinators, and UNICEF staff.

Highlights of the discussion

2. Welcome Remarks. Sarah Norton-Staal, Chief of Child Protection, delivered the welcome remarks and stressed that this workshop aims to provide technical guidance on CPWG coordination and look into plans for transition, specifically to improve coordination work in the regional level.

1 Plans for this recruitment are under discussion.

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On behalf of Director Patricia Luna of the DSWD Social Technology Bureau, Nilda Oliva of DSWD Field Office VIII delivered opening remarks. Also a TY Haiyan survivor herself, she mentioned that she provided CPWG coordination work and technical assistance. She thanked NGOs and international organizations for their assistance. Coordination with CPWG coordinators has assisted their capacity. This will be an excellent opportunity to check the status of program implementation and coordination, as well as discussing the way forward.

Katy Barnett, Global CPWG Coordinator, also welcomed everyone. It was mentioned that TY Haiyan is a massive emergency compared to past and other on-going emergencies. Progress in humanitarian response is being monitored as it is the first time to implement some new protocols. Child Protection practitioners will continue to monitor the experiences and lessons from this emergency.

3. Workshop Objectives and Review of Agenda. Mioh Nemoto, Regional Emergency Specialist, facilitated this session. Copy of presentation is attached (Annex 1). Among the workshop ground rules developed were:

Keep focused on the field experiences. Develop a transition plan. Recognise that there are other CPWG partners from non-Yolanda areas. Mobile phones in silent mode. Give chance to everyone to share their experiences.

4. Key standards and principles for child protection coordination. Katy Barnett facilitated this session to provide essential Guidance for new Partners and Transition. Copy of presentation is attached (Annex 2). Reflections from this session include:

Every situation presented a different arrangement for coordination. In Pakistan, CPWG coordination officer reported to programme officer.

Galit Wolfensohn, UNICEF CP Specialist for Tacloban, noted that there is a need to distinguish roles for coordination and programme management, i.e. coordinator should do nothing aside from coordination. Clarify which are programme functions and what are coordination functions, and identify instances where double hatting is important. Obligation to understand what each other does, to support each other. As a follow up to this recommendation, Katy Barnett developed a matrix that outlined coordination vs. CP programme functions and responsibilities (Annex 3).

It is essential to understand these functions to make better use of resources. One of the key challenges in the CPWG implementation in the Philippines has been

communication and information flow, noting the number of actors involved in different hubs, and the demands of reporting and information sharing from different sectors and partners, including OCHA through regular Sit Reps.

Sarah has shared a template for communicating updates/progress from CPWGs in different hubs, including brief updates on challenges and opportunities, noting that these can then be easily shared allowing a quick snapshot from the different contexts . Templates have now been completed for each hub/CPWG location (Annex 4).

5. Cluster Transitioning to recovery phase. Choose the best arrangement for transitioning based on the key government linkages for child protection.

Five principles to guide transition and de-activation planning:1. Process is led by HC and HCT - Clusters, cluster partners and national

counterparts should also be involved2. Focus on ability to lead and be accountable for Cluster Functions according

to outstanding humanitarian needs. The HC, HCT and CLAs remain with a responsibility to ensure that preparedness actions are carried out.

3. Based on Assessment of National Capacity including: (a)some clusters will have a more natural counterpart to ‘hand over to’ than others, making

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transition easier and potentially more rapid. (b) Extent of residual or on-going humanitarian response needs and ability to respond

4. Informed by the Context - de-activation in sudden onset crises may be a more rapid process than de-activation in complex or protracted emergencies. The probability of recurring or new disasters or the costs of closure and subsequent early re-establishment may outweigh potential benefits, including additional capacity building and preparedness actions which may have taken place.

5. Guided by Early Recovery objectives –Ensure that humanitarian actors reinforce and build local capacity for more sustainable responses. Clusters should, where feasible, engage with national actors in cluster leadership, and engage in building capacity of national counterparts to take over coordination roles

Suggested context: 1. Map out the continued humanitarian response and coordination needs (based

on the six cluster functions)2. Identify government or other appropriate coordination and response

mechanisms to take over leadership and accountability for cluster functions 3. Examine the capacity of the identified mechanisms to take these on 4. what capacity building measures and activities may need to be put in place

during transition to enable de-activation and over what period of time5. Accountability for cluster functions between Cluster Lead Agencies (CLAs)

and national counterparts during any phased transition and de-activation plan should be clearly laid out.

6. Proposed timing for transition measures and if appropriate, eventual de-activation

7. Proposed timing for any further cluster reviews as appropriate8. How preparedness measures (as per Preparedness Section) will be ensured

after de-activation and any continued role of the Cluster Lead Agency.

6. Example of Transition for Typhoon Washi response in 2011. This was discussed by Jess Far. Among the key points stressed were: Review of national legislation to identify existing structures whose mandates could

include CPIE Identify relevant structure (Local Council on Anti-Trafficking [LCAT]/Violence Against

Women and Children [VAWC]) Meeting with members of LCAT/VAWC and other partners to discuss steps needed to

transfer responsibility and ‘activate’ the LCAT/VAWC Ensure continued support of local NGO co-leads as official members of the LCAT/VAWC Gain endorsement from local government officials Capacity building of leadership Mapping out roles and responsibilities for the various actors in ensuring transition

7. Lessons from Washi. Katy Barnett facilitated this session. She highlighted the following points: Underestimation of the impact of dynamics and power issues within local politics. Sensitivity to protocols very important. Customary law needs to be well understood. Timeframe for transition was too short Capacity building should have been seen as a longer term investment not time-bound. Need to have regional and local / city engaged from outset. Need to invest in regional level and in surge for preparedness.

8. Reflections and Feedback:

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Transition within Protection cluster. In previous emergencies, including in Washi, there have been unilateral decisions taken by UNHCR to discontinue the Protection Cluster. Need to discuss the indicators to discontinue and the mechanism to discuss. It was recognised that in previous emergencies, we didn’t have the luxury of external coordinators. UNHCR indicated that a lack of human and financial resources made it necessary to take these decisions.

During TY Washi, there was training with DSWD on Child-Friendly Spaces (CFS). It was an important initiative and DSWD expressed willingness to take greater ownership of CFS management in future emergencies. Unfortunately the capacity developed on CFS during the previous emergency was not utilised for TY Haiyan. The CFS implementation experience in Haiyan is now being documented to gain better understanding of challenges and opportunities and guidance for the way forward. Because of massive TY Haiyan destruction, DSWD intimated that priority was on relief efforts. Now that Director Pat Luna is assuming as CWC Deputy Director, it may be a strategic moment to push for this.

Regional CPWG have been organised. In the Tacloban HCT, shelter and livelihood cluster were identified as priorities, but need to advocate for protection.

At Manila level, cluster coordinators have an arrangement to cover for each other/ represent structures.

At Manila HCT, decisions were made to support certain structures. Priorities were shelter and early recovery & response. National level HCT is expecting clusters to come and recommend on continuity (or need to disband temporarily). CPWG should approach that forum through Protection cluster through UNICEF, i.e. Health cluster signified their need to be supported.

Funding support is also critical in continuing structures. Humanitarian Camp in Guiuan will be discontinued in March.

OHCHR had a scoping mission, to co-lead in the protection cluster of Region VIII. CWC is planning to issue a Council Board memo to mandate the creation of regional

CPWGs and designate focal persons. They are now routing the TOR for comments. CWC acknowledged the need to build on RSCWC functions.

9. Quick Overview of Cluster System with focus on Protection Cluster Roles and Responsibilities. Session was facilitated by Sarah and Jess. The session started with a quick overview on the different CPWGs at national and sub-national level.

Susan Prosser presented an overview of the National CPWG. It was shared that NCPWG holds a meeting weekly since November and started with bi-monthly arrangement in February. NCPWG is co-chaired by DSWD and CWC. CWC is an attached agency of DSWD. It was recognised that Protection cluster and GBV sub-cluster is seated more strongly at the DSWD Central Office. Partners often have to decide whether to attend CPWG or GBV. At the onset of the emergency it was recommended that CPWG and GBV sub cluster meetings be scheduled to avoid conflict however this recommendation was unfortunately not followed.

Noting that in many of the hubs CP and GBV sub clusters are now meeting jointly, thus the importance of CP and GBV coordination and communication at the national level should also be emphasized.

In addition it should be noted that in the Philippines, there is a natural convergence between CP and GBV in regional and local structures, including the LCAT VAWC, thus even more important for CP and GBV to be well coordinated. Under-secretary Taradji had from the onset of the emergency suggested that CP and GBV sub clusters meet together, rather than separately.

10. Reflections:

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It was felt that National CPWG needs to provide oversight functions for sub-national CPWGs.

At the onset of TY Haiyan emergency, CWC faced challenges in organizing NCPWG initiatives, noting limited human resource capacity and the demands of holding meetings in this scale of emergency response. This challenge also reflects the decentralised nature of the Philippine government.

Need to reflect the technical assistance needs at the regional level that may be supported by NCPWG. Region VII also recognised that CPWG work is new to them and need technical assistance.

Need to clarify roles on coordination between sub-national and national level. Consider the need to have a focal person at sub-regional level to focus on CPWG coordination work.

Discussion shows that sub-national CPWG structures are moving forward more quickly than the national level structure, noting they are in the field and directly involved in emergency response. Need to develop the workplan for the National CPWG and ensure that it would be two-fold: providing technical assistance to regions & having their own targets at Manila level, i.e. maintaining CFS at Villamor Airbase.

Consider the need to expand NCPWG capacities to take on armed conflict concerns. Need to have a proactive response / readiness.A draft TOR is now being routed by CWC to mandate the creation of regional CPWGs and

designate focal points. It has two options: (1) RSCWC to serve as regional CPWG; or (2) regional CPWG to serve as sub-group within the RSCWC. This recognises the need to build on capacities of RSCWC and not create new structures.

It was noted that as the National CPWG/CWC was unable to send participants to the Cebu meeting, that a one day “Team Building” exercise was recommended to allow for a an orientation of CWC team on the outcomes for the Cebu meeting and recommendations for the way forward.

As supported by the same TOR being routed, focal points on CPIE will be trained per region.

11. Small group workshop. Participants were divided according to administrative regions. Each group discussed the following concerns. What are the main stages of the planned CP response? How will the role and ways of working of the coordination mechanisms adapt?

1. Will all the 6 functions be required?2. Will the frequency/ nature of meetings change?

How will the relationship between the two evolve? 1. As coordination and IM capacity decreases, will program staff need to take on more

responsibility for coordination?What external communications will be needed from the child protection sector?

12. Reflections on the small group discussion:Need to discuss the role of NGO partners in CPWGs.There is an expectation to document and capture CPWG initiatives. To gather evidence,

best practices, issues to be addressed, etc. Given the limited space for periodic Situation Reports, some CPWG initiatives are not

accurately captured for sharing with other humanitarian actors. Reporting focused primarily on accomplishments. There is a need to consider for IM to

provide data analysis products, identify data gaps/ analysis, and provide baselines for CPIE planning.

Need to have a formal process of integrating CPWG & CPIE initiatives in LCPC workplan. Need to clarify roles, responsibilities, and expectations on CPWG co-chairs, CPWG

coordinator, and IM manager.

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Transition plans to be developed in the sessions tomorrow, including specific plans for IM, CPWG coordination, etc.

Time frame for transition planning should be agreed. Need to map national and regional government structures. Please see Annex 5.

13. Wrap Up of Day One. Margaret Sheehan, UNICEF Emergency Field Coordinator based in Manila, shared that UNICEF is reviewing plans of integrating cluster coordinators in the UNICEF organogram to take on emergency coordination work and lead proactive response initiatives during non-emergency phase.

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Day Two – 18 February 2014

1. Recap of Day 1 by PLAN International.

Reflections and Feedback: Some members were surprised by the definition of “coordination”, and that coordination is

necessary to improve humanitarian response. It also brings humanitarian actors on the same page to plan and implement to address common goals.

Need to distinguish CP programme from CP coordination. Assessment is necessary to inform our programme response. Need to gather together all insights and recommendations on how National CPWG can

support sub-national CPWGs.

Highlights of the discussion:

2. Lessons Learned exercise. Participants were asked to identify one key learning from humanitarian response. Below are the responses:

A. Supporting Service Delivery Synergy between CPWG and CP regular programming Need to have clarity on roles and responsibilities between cluster coordination and

UNICEF programming Need to clarify division of responsibility between cluster and programmes early on to

increase efficiency and reduce duplication Roles and functions of international, local humanitarian organization are not so clear

B. Informing strategic decision making of HC HCT for humanitarian response Need to have internal arrangements within CPWG on coordination to facilitate response TOR for cluster should be defined early Coordination should not be politically inclined Cluster coordination on the basis of humanitarian effort is new to Zamboanga hence at

the beginning more on burden than facilitating.

C. Planning and strategy development Joint coordination between CPWG and GBVSC Participation of small local NGOs in CPWG and GBVSC in Bohol On coordination, give time in listening to the untold fact of the situation and value the

capacity of the co-actors by doing some compromising on your end. Understanding the dynamics of the organization you work and coordinate with. LCPC can be activated easily to coordinate CP response. Be aware and understand the local context. Strategic workplan for cluster should be developed in one month – clear role, outputs,

and foster expectations. CPWG workplan in place within 4-6 weeks Define CPWG contribution to SRP results

D. Advocacy Need for consistent UNICEF co-leadership Coordination should take place where the action is Asking is the first step to understanding Need clarity on budget for transition Lack of cluster work plan makes it challenging to prioritize, make strategic contributions

and monitor progress

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Cluster meetings dominated by international/ non-national actors. Lesson is to find ways to enable greater participation by CBOs and greater voice to national / government coordinators

E. Monitoring and reporting Knowledge on who is doing what. Members of CPWG very active and committed, but email communication need some

improvement. Define CPWG coordination lines of accountability Feedback loop should be established to ensure cluster meeting needs and review

regularly Information feedback system within DSWD, who’s doing what where.

F. Contingency planning, preparedness and capacity building Define how CPWG can support strengthen NCPWG Do training on clusters in week one It would have been useful to build cluster tools from past emergencies in the Philippines

(TORs, etc.) No orientation about cluster coordination efforts in responding to disaster Define CPWG contribution to SRP results Timely formation of sub-national CPWG

3. CPWG Coordination Lessons Learned. Mioh facilitated this session and shared the operational peer review conducted in mid-January. Among the highlights of the presentation are:

Lack of common understanding internally on its accountability. There is a need for better coordination between national and field-level clusters, with

clarification on the roles and responsibilities.

4. CPWG Information Management. Umar Daraz presented the roles and responsibilities of the cluster IM person. Highlights of the presentation included:

Among the responsibilities of IM is on data analysis and preparation of information products, i.e. cluster snapshot and cluster briefs.

IM also facilitate response monitoring to visualise the areas and beneficiaries reached, as well as identify response gaps.

It was stressed that these information products rely on the 5Ws submissions. The accuracy of these products depends on the quality and veracity of the 5W entries.

5. Reflections and Feedback: Sarah noted that IM is one of the key capacities we lacked in previous emergencies,

thus we are very appreciative of having the luxury of several coordinators where there were previously none, but would also expect to get better much evidence/results/outcomes from CP reporting and information collection in this emergency because of the wealth of IM presence, and hope that CP Programme can ask Cluster IM for assistance in this regard. We also need to know what the IM Officers are doing and how they are contributing through their documentation. It was stressed that capacity building on this direction would be necessary in preparation for next emergencies.

Umar responded that we need to partner with government CPWG co-leads in building these capacities.

Katy noted that this is a unique emergency – large scale, well-funded, and closely monitored by humanitarian actors globally. We need to document our learnings to present a strong evidence of our capacity needs (including on IM) and plan to address these requirements.

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While CPWG coordinators and IMs are here, we absolutely need to review the lessons learned from TYs Bopha, Washi, and Haiyan – to identify preparedness strategies on coordination and IM for next emergencies.

In developing transition plans, we need to consider preparedness strategies on cluster coordination and IM.

6. Preparation of Transition Plans. Mioh facilitated this session and requested participants to fill out the transition planning matrix. Margaret elaborated on the guidelines in filling out the matrix. This planning is dedicated entirely for Child Protection initiatives. It was stressed that timeframe for turnover is by November 2014.

7. Presentation of Transition Plans. Each administrative region was tasked to prepare their transition plans. These plans were then presented in plenary. Please see Annex 6.

Below are the comments/ inputs for each administrative region:

Zamboanga Humanitarian Crisis. Given that Zamboanga is not covered in the Strategic Response Plan for

Typhoon Haiyan, the CPWG is granted more flexibility in modifying their strategies to fit the demands. Their situation can actually serve as a reference for other CPWGs.

Region VIII on Haiyan emergency. CPWG is proposing a dedicated person from DSWD FO8 to manage CPWG coordination. CPWG coordinator for Tacloban would have to travel across the region.

Region VI on Haiyan emergency. Child Fund would act as co-lead of CPWG. CPWG is now in the process of integrating CPIE and CPWG concerns in the RSCWC workplan. They are also advocating for the inclusion of more NGO members in the RSCWC, as it would take on the CPWG functions.

National CPWG. Transition plans include transition meetings with DSWD & CWC, development of TOR & inter-agency guidelines to mandate creation of regional CPWGs,

Consider merging protection cluster and its sub-clusters (CPWG & GBV). Need to have surge capacity at Manila-level: capacity building on coordination,

IM, and psychosocial support. Impression that NCPWG should be more ready to provide oversight on field-level

CPWGs.CPWG coordinators to meet with DSWD & CWC to provide them an overview of

the context of the different regional CPWGs. Consider plans of convening a team-building workshop.

NCPWG coordinators should regularly touch base with regional CPWG coordinators. Suggest a meeting every other month.

Manila will be the strategic point for humanitarian preparedness. Need to evaluate the transition process, as a guide for future emergencies. The NCPWG coordinator will be a roving post.

8. General Reflections on Transition: Need to consider having a formal turn-over for cluster transition. Consider developing

induction meeting for CPWG coordinators. This is now being done in Tacloban. This is to aid the transition by providing overview of cluster system, its accomplishments to date, issues to be addressed, etc.

Action Points noted by Katy Barnett. Need to have pre-trained coordinators to take on these functions. Difficult to

deploy a team from zero. Need to unpack that and have people operate on Day 1.

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Consider multi-level (national and sub-national) training. Geneva office to provide technical support.

9. Closing Remarks. Representative from Zamboanga City LGU delivered the closing remarks. Appreciation was extended to UNICEF for providing technical assistance on CPWG and cluster coordination. It is Zamboanga’s first time to experience this type of international assistance. This workshop enlightened participants on the process of cluster coordination, particularly on child protection. UNICEF was thanked for its commitment to improving the welfare of children.

10. Margaret responded on behalf of UNICEF. She thanked everyone for their commitment to actively take part in all discussions and contribute towards the development of transition plans. She stressed the need to continue communication on cluster work. Katy and Mioh were acknowledged for guiding the process, while Sarah was thanked for ensuring the seamless execution of plans to host this consultation.

Next steps. Jordan and Rodel to prepare draft zero of the consolidated transition plan. Initial draft will be sent to Sue for refining. This will then be sent to Sarah, Katy, Mioh, Galit, and Margaret.

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Annexes

Annex 1. PowerPoint Presentation: SRP on Protection for TY Yolanda/ Haiyan emergency

Annex 2. PowerPoint Presentation: Key standards and principles for child protection coordination

Annex 3. Outline of the respective roles of cluster and programme staff for child protection

Annex 4. CPWG description and lessons learned

Annex 5. Map of National and Regional Government Structures (pending from Jess Far on behalf of DSWD)

Annex 6. CPWG Transition Plans

Annex 7. List of Acronyms

List of AcronymsCFS Child-Friendly SpaceCLA Cluster Lead Agency (for Child Protection, this is UNICEF)CP Child ProtectionCPiE Child Protection in EmergenciesCPWG Child Protection Working Group (this can refer either to the UN cluster or the

Philippines government cluster)CWC Council for the Welfare of Children (the Philippines government agency)GBV Gender-based violence GBVSC Gender-based violence Sub-cluster HAP Humanitarian Action PlanHC Humanitarian Coordinator (the UN representative who leads the Typhoon Haiyan response)HCT Humanitarian Country Team (the UN representatives who lead the Typhoon Haiyan response)IM Information Management LCAT Local Council on Anti-TraffickingLGU Local Government UnitNCPWG National Child Protection Working GroupOCHA Office for the Coordination of Humanitarian Affairs (the UN agency that leads coordination) OHCHR Office of the High Commissioner for Human Rights (the UN agency that is co-

leading the Protection cluster in the Philippines context)PCA Programme Cooperation AgreementRSCWC Regional Sub-Committee for the Welfare of ChildrenSRP Strategic Response PlanTOR Terms of ReferenceVAWC Violence against Women and Children

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