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CAAFAG Working Group / Rapid Assessment Exercise / SeptemberOctober 2006

The Situation of Children Associated with Armed Forces

and Armed Groups CAAFAG

Nepal

A Community Assessment and Understanding October 2006


Acronyms

CAAFAG Children Associated with Armed Forces and Armed Groups CAAFAG WG CAAFAG Working Group UN United Nations UNICEF United Nations Children's Fund OHCHR Office of the High Commissioner for Human Rights INGO International Nongovernmental Organization NGO Nongovernmental Organization TPO Transcultural Psychosocial Organization CZOP Children as Zones of Peace UNSCR United Nations Security Council Resolution CPNM Communist Party of Nepal, Maoists CBO Community Based Organization HRO Human Rights Organization PLA People's Liberation Army SF Security Forces CDO Chief District Officer FGD Focus Group Discussion PLC Paralegal Committee CPC Child Protection Committee VDC Village Development Committee


Table of Contents

Background ...........................................................................................................................................1 Rationale................................................................................................................................................1 Objective ...............................................................................................................................................1 Methodology .........................................................................................................................................2 Target Groups .......................................................................................................................................2 Geographical Coverage and Organizational Responsibilities............................................................3 Limitations/ Time constraint:...............................................................................................................3 Analysis…………...………………………………………………………………………………5 Definition, understanding about CAAFAG ........................................................................................4 1. Who are the CAAFAG?...........................................................................................................4

2. How do the communities understand the phenomena of children being associated with armed forces and armed groups?.............................................................................................4

Return of CAAFAG..............................................................................................................................7 3. What is known about the return of CAAFAG in their communities? ..................................7

4. What would be the appropriate time for the children’s return? ..........................................10

Reintegration of children....................................................................................................................11 5. What are the needs of the CAAFAG in terms of reintegration into the family and the

community? ............................................................................................................................11

6. What roles could each ‘target groups identified for the assessment’ play in the children's return and reintegration process? ..........................................................................................12

What are the gaps revealed by the assessment?............................................................................12

Recommendations……………………………………………………………………..……..15

1. Recommendations to Government authorities and Political Party members, CPNM and the SF ......................................................................................................................................14

2. Recommendations for the community group (Teachers/ men and women groups / CPC (CBO) and HRO) ...................................................................................................................15

3. Recommendation for Donors/ International communities and CAAFAG Working Group .................................................................................................................................................16

4. Recommendations for children, parents, and the journalists...............................................17

CAAFAG Working Group / Rapid Assessment Exercise / SeptemberOctober 2006 1

Background

A group of organizations working for the rights and the protection of children formed a coalition to specifically work on the issues related to Children Associated with Armed Forces and Armed Groups (CAAFAG) 1 . The coalition was named the CAAFAG working group (CAAFAG WG). It was established in 2005, and it comprises of two UN agencies (UNICEF, OHCHR), six INGOs (Save the Children Alliance, International Rescue Committee, Search for Common Ground, PLAN, CARE, and TPO), three NGOs (CWIN, UCEP and Sahara) and the Children as a Zone Of Peace (CZOP) coalition. The ICRC, OXFAM and GTZ participate in all meetings as observers. The CAAFAG WG constitutes a forum to develop and coordinate comprehensive and harmonized responses for the release, return and reintegration of CAAFAG.

In September 2006, the CAAFAG WG decided to conduct a rapid assessment at the community level to better understand the status of the CAAFAG so that this understanding could facilitate the development of a national strategy for the return and reintegration of the CAAFAG.

Rationale

There is no comprehensive data regarding the number of CAAFAG. However, human rights organizations and community rights activist have documented and reported numerous incidents reflecting the association of children in the armed forces and the armed groups. The UNSCR 1612 Task Force 2 has documented number of cases of use and recruitment of children, their abduction, killing and maiming, as well as attacks against schools, illegal detention, etc.

Though the issue of CAAFAG has been widely publicized in national and international arena, very little success has been achieved in terms of their release/return and reintegration throughout the period of the armed conflict. With the major shift in the political scenario of Nepal, from the armed conflict to the April 2006 ceasefire, the environment became more and more conducive for such efforts. To make the most out of this period the CAAFAG WG decided to conduct this assessment as a first concrete step towards achieving the goal of return and reintegration of CAAFAG.

Objective

The assessment had two major objectives. The first objective was to get a better understanding of the situation faced by the CAAFAG; to learn from the community the perceived challenges and needs of the CAAFAG in their return and reintegration process, to understand the roles that could be played by the different stakeholders in the process, and to learn the community’s perception regarding CAAFAG. The second objective was to consider all these findings to

1 The definition of CAAFAG includes all children who have been involved in the armed forces and armed groups in any capacity, e.g., as a spy, messenger, porter, cook, soldier, fund collector, logistic supporter, artistes in cultural groups, or those who have been arrested and detained on charges of being Maoist, etc. 2 The UNSCR 1612 Task Force is a coalition of UN agencies, INGOs, and NGOs whose mandate include monitoring and reporting on child rights violations. The Task Force monitors and reports on the six core child rights violations listed in the UNSCR 1612.


inform and complement the development of the national strategy to promote an active and successful return and reintegration process for the CAAFAG.

Methodology • Desk review and CAAFAG WG meetings (guidelines and questionnaire development) • Coordination meetings with concerned stakeholders at the national and the district level,

e.g., the chiefs of the army, police, armed police forces, as well as CPNM central committee members and district representatives to introduce them to the objectives and modalities of the assessment, as well as to seek their agreement.

• Orientation of the field assessors • Individual interviews and focus group discussions carried out with the identified target

groups • Data consolidation and analysis • Final report dissemination workshop for the CAAFAG WG members

Target Groups

The identified target groups were categorized into five different clusters namely children, community, the governmental authorities and members of mainstream political parties, the Security Forces (SF), and the Communist Party of Nepal, Maoists (CPNM). Each of these clusters consisted of the following groups:

Ü Children: the children from the community (child clubs and youth clubs), the CAAFAG, and the returned CAAFAG (also referred to as the returned children)

Ü Community: parents of CAAFAGs, parents of returned CAAFAGs, men’s group, women’s group, teachers, journalists, human rights organizations (HROs) and community based organizations (CBOs)

Ü The governmental authorities and members of mainstream political parties: Chief District Officers (CDO), members of District Child Welfare Board, and members of the seven political parties,

Ü Security forces:members of the army, the police and the armed police forces, Ü CPNM: members of the People's Liberation Army (PLA), the political branch, the

cultural groups, the women's association, and the student unions.

Target groups interviewed: 919 persons 320 children: 120 children from child clubs, 120 youth from youth's clubs, 47 returned

CAAFAG in the community, 16 residing in Transit centre and 17 CAAFAG still associated

76 parents: 42 parents of returned CAAFAG, 27 parents of still associated CAAFAG and 7 mothers through Focus Group Discussion (FGD) of still associated and returned CAAFAG

38 SF members: 14 police members, 12 armed police members and 12 national army members

52 CPNM members:1 district in charge, 1 district secretary, 4 political cadres, 1 member of the PLA, 2 FGD with PLA, 2 FGD with political department, 3 FGD with women association, 2 FGD with Student union


42 government authorities and political parties: 6 CDOs and 36 members of political parties and Child Welfare Board members

12 religious, caste and ethnical leaders 120 men in the communities 120 women in the communities 100 members of HROs, CBOs, Para Legal Committees (PLC): 65 Child Protection

Committees (CPC), 25 HR, 10 PLC 7 journalists 31 teachers

Geographical Coverage and Organizational Responsibilities

Six districts and two VDCs in each district were selected for the assessment. The selected districts and the VDCs are:

Ü FarWest: Kailali (Masuriya and Sugarkhal VDCs) and Dadeldhura (Jogbuda and Alital VDCs). Save the Children US and Search for Common Ground conducted the assessment in these districts.

Ü MidWest: Banke (Phattepur and Gangapur VDCs) and Surkhet (Neta and Gumi VDCs). CWIN conducted the assessment in Banke and International Rescue Committee in Surkhet.

Ü West: Baglung (Sigana and Amalachaur VDCs). Save the Children Norway conducted the assessment.

Ü East: Udayapur (Dumre and Panchawoti VDCs). Save the Children Norway conducted the assessment.

CAAFAGs residing in a transit center in Katmandu and Bhaktapur were also interviewed (total two transit centers). CWIN and UCEP interviewed the children in their respective transit centers. UNICEF provided the technical and overall coordination support in building tools, in orientating the field assessors, in compiling data and the overall analysis of the assessment.

The selection of the geographical areas was guided by the presence of the CAAFAG WG members in those areas, as well as to get a quick representation from all the regions, given the limitations of time and access.

Limitations/ Time constraint:

The CAAFAG WG had felt the urgency to undertake an assessment on the issues of CAAFAG. Given the fluid political situation, the ceasefire was taken as a window of opportunity when such an assessment could be made. This did not leave too much time for elaborate preparations. The translation of the tools (guidelines and the questionnaire) and the orientation of the field assessors were done rapidly. Many of the field assessors expressed that the oneday orientation for them and one week period for the assessment in the field was not enough.


This section is divided into two parts. First section which starts with the question contains a synthesis of the response received from those interviewed and the second section follows the CAAFAG WG's assessment and general recommendations. The question at the beginning of each section is the question asked to the interviewee.

Definition, understanding about CAAFAG 1. Who are the CAAFAG? The assessment revealed that across the groups, all persons interviewed had a common understanding of the CAAFAG general profile. The definition given for the CAAFAG was not limited to the child combatant, to those directly associated with the armed groups or armed forces and trained in using weapons. A CAAFAG is a child who is being used in several capacities such as a porter, messenger, spy, sentry, logistical supporter, fund collector, including a child involved in cultural/indoctrination programs.

Both the parties to the conflict do not openly admit that they are using children, but both the parties recognize that the other party is using children, and they define CAAFAG broadly as the other groups as mentioned above. The CPNM agreed that they have children of their martyrs (orphans), children of their own cadres, and other children who need protection.

What is the age range of CAAFAG? The children are between 918 years, and the majority of them are between 1518 years. Some children of below 18 years are involved in SF by falsifying their age in the citizenship certificates.

Analysis: Since the people interviewed had very good knowledge about who the CAAFAG are, awareness program should therefore focus more on information analysis about the reasons that led children to be associated with armed groups or armed force; as well as the experiences the children went through during their association, the risks for the children and their protection needs. The child protection agencies aim at ensuring that children will not be held responsible for the violence committed by both the parties that used them for political or military purposes.

2. How do the communities understand the phenomena of children being associated with armed forces and armed groups?

2.1 In which group are the children associated with? Although the majority of the interviewees recognize that both the parties have used the children, they have a better understanding and/or description of the role played by the children in the CPNM. The majority of the target groups stated that the children in the CPNM are involved initially in cultural programs and are associated with political activities / in political associations and the student union, but later they are given other responsibilities as well. The understanding is that the majority of the children involved in the PLA and/ or militias started off by being


involved in cultural programs or political indoctrination programs. Thus, there is an increase in children’s responsibilities and eventually (or if needed) they end up in the PLA or as militias.

Children have joined the SF voluntarily by increasing their age in the citizenship certificate. But the children have been also forced to join the SF, being arrested in an accusation of supporting the Maoists. The children were illegally detained, tortured and were forced to collaborate with the SF.

Analysis: The involvement of children in cultural groups, political gathering or programs has to be considered as a risk factor for children, for at some point they could be given additional responsibilities and could be involved in roles that would entail more exposure.

2.2 How do children become associated? Most of the returned CAAFAG interviewed have not mentioned abduction as a reason for their association with the CPNM. Children are said to have joined CPNM mainly because they have been persuaded or allured. However, people consider that such enrollment—compelled, allured, misled with false promises, and persuaded during children's participation in various CPNM activities—is abduction, considering the highly malleable age of the young children. Children are not allowed to go back home as expressed by some of the interviewed children, and most of the returned CAAFAG interviewed had to escape from the group to be able to return home. Adults believe that the Maoists exploit children’s individual difficulties such as struggle with their parents, absence of the father, etc to convince them to join the CPNM movement. Therefore the recruitment of children within the CPNM is also carried out on an individual base, by contacting personally each of the children.

Many of the target groups interviewed highlighted that threats posed by Parties against their families / their communities was a reason to join the other group. For the children (CAAFAG, returned CAAFAG) the association is considered as a means to protect themselves and their family members. There have been few cases documented during the field assessments of children who have joined the SF by increasing their age in the citizenship or birth certificate.

Analysis: The assessment highlights the communities’ lack of resources to prevent the misuse of children as well as the great need to support or encourage individual or group initiatives at the community level to negotiate the release of children and to prevent their use.

Recruitment in school environment: Schools are clearly seen as the main recruitment sites for the CPNM. The lack of quality of education in schools is mentioned occasionally as a reason for the children to join the armed groups/forces. While pressure from peers and groups seemed to compel some to join, for others it was the attraction of the party, mainly the entertainment factor provided by the cultural or/and political programs.


Analysis: In order to keep children in schools and away from harm in political activities organized by any political parties, ways must be sought to prevent the access of political parties inside school premises for political activities. Schools should be made attractive enough for children so that they do not want to leave it, whatever the allurement. This means improvement in the classroom and school environment; in making school education socially inclusive, where there is respect for everyone; in encouraging children's individual initiatives and promoting children’s expression; in making teaching and learning a fun exercise; in promoting extracurricular, including cultural activities. These improvements could prevent children from being attracted into political activities or from being lured away from schools seeking more attractive alternatives.

2.3 What are the reasons for children to be associated? Out of the total, 72% of people interviewed think that the cultural and political indoctrination activities carried out by the CPNM have been the main attraction for children; similarly, the children have been convinced by or have followed their friends and/or their family members. Fifteen percent of them think that poverty, discrimination and a poor family/community environment are other push factors. Only 2% of children interviewed have mentioned “revenge” as a basis to join. Other reasons stated were lack of protection at the family and community level, lack of presence of the government at the community level and the lack of security in the VDCs. Some also mentioned difficult family relationships as a reason to join both forces.

2.4 What is the attitude of the community towards the CAAFAG? Generally all the target groups looked at children as victims being manipulated and not being mature enough to comprehend their choices. They highlighted that the children deprived from their basic rights, felt obliged to follow orders without being able to make an informed choice. They also recognized that the children had to struggle to save their lives or more generally to improve their living conditions. Therefore, it appears that communities are willing to welcome the children back and they anticipate that it will not be a difficult task.

However, some of the groups expressed that the children could be treated as perpetrators, depending upon the nature of the violence that they have committed, depending upon their age, or the nature of their association—whether they were forced to join or had joined voluntarily. On the contrary, some of the community groups emphasized that even though some of the children have acted as perpetrators, they needed to be forgiven and supported as they were immature and did not realize what they were doing.

Analysis: The question remains whether these views will be transformed when communities feel more secure and no one uses weapons to exert armed control over the communities. In the worst case scenario, the communities could be afraid to express their real feelings towards the CAAFAGs, or in fact be holding a strong grudge, or a feeling of revenge towards them. The number of children being obliged to flee to India after their return has also to be explored to understand why these children couldn't stay in their community after their return.


2.5 Risks and consequences faced by the CAAFAG? The risks and consequences faced by the CAAFAGs such as mental disturbances and psychological difficulties (trauma, stress, being lost in themselves, difficult behavior, and constant fear) were expressed by almost all groups except by the CPNM. Separation from families is also seen as a risk and the lack of love and care is seen as consequences. The interruption of education is frequently mentioned by different groups, and they see it as a risk of further association or as a negative consequence in the children's future development. The groups indicated that many children have been exposed to violence, caught in struggles, tortured, detained, maimed or wounded, suffered from sexual and labor exploitation and diseases during the conflict.

Analysis: The community needs to understand that as long as children are involved with any armed groups or forces and are directly participating in the political activities (rallies, demonstration, etc.) they continue to be at risk. If children stay with a political group away from their families and are involved in the political activities, they will face risks of psychological impact, and the risk is not just limited to the period of conflict.

Return of CAAFAG

3. What is known about the return of CAAFAG in their communities?

3.1 What information do communities have on the children’s return? All the target groups are positive about children’s return. However, sometimes they are suspicious about these children because of the possibility that some of them could keep contacts with their former commander and continue to work as spies even after their return. There is a general expectation that they should be openly informed by appropriate authorities about the possibility of their return.

Of the parents of the returned children interviewed, 32 % expressed that they saw negative behavior changes (anger, aggressiveness, crying, shouting, rude behavior, constant fear) in their children, but 42 % of the parents saw positive behavioral changes (more interest in school, more responsive, positive thinking, more clever, etc.)

Analysis: On one side, awareness effort should emphasize that children should never be associated and used in any capacities in the armed conflict, and on another side the community has to understand that these children have changed. Although the experience that children underwent as CAAFAG should never be qualified as positive, but children as individual have grown and it's also important to recognize the positive changes in them to build on for their reintegration. It will be important that the programs assist these children in identifying the positive qualities they possess so that they could focus on those skills for their own wellbeing as well as the betterment of the society.


There is a need for dialogue in the community about these children to make people talk openly about CAAFAG. Such dialogues would assist in finding solutions when difficulties could arise during the reunification and reintegration of such children.

3.2 Risks/Challenges/constraints identified for the return of CAAFAG: The target groups in general look at security as one of the main constraints for the return of CAAFAG. They outline fear of being targeted, tortured or harassed by both the conflicting parties, and the high risk of rerecruitment of the children as some of the risks. Some of the groups also see the acceptance from the community to be a real challenge.

Half of the returned CAAFAG stated that they did not really face any constraints after returning to their communities. Those who did face constraints have been threatened by the CPNM and/or the SF (20%) or suffered from the community's suspicious attitude (22%). Few children from the community also rejected them or socially excluded them. After some time of their return, however, most of the children, parents and community have accepted these children.

Analysis: It seems that due to lack of open dialogue and the fear of exposing their situation, parents and children live with the constant fear of being rejected and targeted. Therefore, there is a huge need for an open dialogue and for mediation efforts at the community level.

However, there is a need to consider the limited coverage of the assessment, and the fact that the assessment has interviewed returned CAAFAG who were already reintegrated in the community. There are cases mentioned of returned children who had to migrate to India, and the issue needs to be taken for further consideration.

A real and open dialogue with the SF is required to break their denial and indifferent attitude towards the potential return of the children and in building their capacities to involve them positively in securing the return of the CAAFAG. Similarly, the dialogue between the community and the children is important to facilitate reconciliation between them.

3.3 Are there specific/ additional challenges for girls? Among the children who have already returned, more girls have been able to stay in the communities after their return than boys, who have fled to India. But 73 % of the parents have said that the girls would encounter more difficulties than boys in their reintegration – particularly concerning marriage or character assassination issues. There is a high suspicion that the girls have been sexually abused or sexually active and therefore the apprehension that they could lose respect and could be exposed to further sexual exploitation after their return. Some of the target groups believe that the difficulties would be varied according to the caste appurtenance. There is an assumption that the girls from Brahmin and Chhettri castes would face more difficulties that the girls from the other caste groups.

Analysis: It seems quite clear that girls in particular will face specific challenges in coming back and being accepted. However, the difficulties and risks for the girls need to be further explored and identified in order to develop appropriate sensitization and response programs for their special


protection and reintegration needs. More studies about how some of the returned girls have been able to remain back in the communities could provide vital leads for the reintegration of other female CAAFAG.

3.4 Conditions for the return of the CAAFAG

3.4.1 The interest from CAAFAG to return Majority of the CAAFAG interviewed are keen to return but they raised some constraints: the fear of CPNM resentment (since their return would be against the party’s policy), the risk of being arrested, tortured, and detained by the SF, the fear to be rerecruited and the community stigma. These reasons lead them to think that they would require official permission/ agreement from the both forces, a significant dialogue, peace and reconciliation efforts, expressed forgiveness from the community, and significant support and protection from their community and family.

However, they seem aware that their social reintegration process would not be an easy process, and they are fully convinced that they will be targeted by the SF. Their capacity to restart the school is also one of their concerns as some of them think they are too old to resume their studies. They want the community to know that they are not responsible for the actual situation in Nepal and in general want to be seen as children in need for protection and in need for a right kind of environment. They strongly claim that there is a real need to eradicate social discrimination and illpractices in the society, and they want to play a major role in achieving these goals.

3.4.2 How did some of the CAAFAG manage to return? From the interview of the returned CAAFAG we have learned that 45% of them returned on their own (they did not go back after leave, they were sick and could not work, their parents were ill so they stayed back, etc.), 30 % escaped (ran away), 17 % got the permission from the party, and 8 % returned because of the initiation from their family members. Out of the 16 children interviewed in the transit centers, 2 were arrested and 14 have surrendered to the SF (these figures do not reflect the above percentages).

3.4.3 What are the reasons that encouraged the CAAFAG to return? The children have decided to return mainly to resume their education (27%), a large group mentioned that they missed the family environment or they had continuous pressure to return from their family members (25%), and almost the equal number of children said that they lost interest or were disappointed with their new life. Some (about 10%) also expressed that they felt fear when they were asked to take part in armed attacks.

Analysis: Quality education and family involvement in the return and reintegration of their child should be among the main points to be emphasized and prioritized while developing prevention and reintegration strategies. The reasons for return stated by the children indicate the need for a reintegration support. The children want to go back to school or be involved in some work in the community, and they need to be provided with support to be able to do so.


3.4.4 What are the prerequisites for the return of the CAAFAG?

Particular groups’ views Ø The CPNM thinks that it is important to develop a proper and secure atmosphere in the

community, ensure mediation with the families and prepare appropriate facilities for education and employment in the communities.

Ø The governmental authorities and members of mainstream political parties think that the State should ensure the security of the children and that the community has to be prepared for their return. They also stated that the CPNM has to recognize the presence of children in the CPNM movement and to agree to facilitate for their return. They also think that child protection agencies have to know the exact number of CAAFAG to be able to better plan their release and support activities.

Ø The religious and ethnical leaders think it is important to reinforce the capacity of the family to protect the children and that the children too will have to change their behavior. However, they are cautious in saying that the child has to agree first to return.

Ø In some cases men in the communities have mentioned that the establishment of a long lasting peace is important for their return, and almost all of them have said that mediation between the community and the CPNM is needed.

Ø Women in the communities say that the community needs to be primed and supported to welcome returning children back to the community. They also highlight the need for dialogue and coordination between both the parties.

Ø HRO, CPC and PLC members requested planning and preparation of programs for the children’s return and reintegration.

Ø The journalists believed that there is a need for organizations to plan and coordinate with both the parties before the return of the children.

Ø Teachers think that CAAFAG should be located and data should be collected to aid better planning.

Analysis: The agreements between the parties have to be communicated to the children so that they are able to make their own decisions to return to their communities. The following points need to be considered: Ü Set up clear mediation mechanisms in communities / referral in case of problems Ü Prepare families, identify potential questions / issues in advance Ü Initiate dialogue between the child and relatives prior to the child’s return

4. What would be the appropriate time for the children’s return? In general, the people interviewed consider the ceasefire as a positive change, but expressed concerns about durable peace and security. They think that a durable peace needs to be secured before the children are returned to their communities. Therefore they emphasize the need for dialogues and mediation at the national and the community levels. Most of them are concerned


about the ongoing recruitment of children. They think that the children would be at risk of re recruitment if they return without a formal agreement between both the parties.

Analysis: The programs should address the fears of the community by opening dialogues between the community and the concerned parties and by communicating the agreements between the parties to the communities. Support for local level initiatives is also important for addressing these apprehension / concerns about the children.

Reintegration of children

5. What are the needs of the CAAFAG in terms of reintegration into the family and the community?

Almost all of the interviewed people mentioned that any support provided should not be targeted just for CAAFAG and should also benefit the families, the community at large and other vulnerable or atrisk children and children with special needs.

The needs and support identified for CAAFAG by the parents' and the children's groups are almost the same. The need for a protective environment is considered a priority above any material assistance: security/protection, family mediation and psychosocial counseling, love and care, public awareness, mediation/reconciliation, access to education (school and skills training), job opportunity and economical support, community development and material assistance (food, shelter, medical). The groups also raised the issue of coordination among the various actors who will be involved in supporting the reintegration process. They argue that the State needs to guarantee the basic needs of the communities, and that there should be special provisions for HIV/AID affected persons, and special trainings like sexual and reproductive health trainings to be provided to returning girls.

All the target groups recognize that girls could face additional difficulties in terms of social acceptance and have indicated that the girls need to be supported in a way so that they could become independent and be able to respond to or mitigate the risks of cultural / social exclusion.

Analysis: The identified needs are more about building relationships and psychosocial supports at the community level. Therefore, involving the community seems to be the most appropriate approach. Services such as education and health should also benefit other children in the community. This must be done to avoid the feeling that CAAFAG are being 'rewarded' and other children are being left out, which could spur unnecessary competition, anger and jealousy amongst them. By singling out only CAAFAG for support, could also send the wrong signal about the benefits of being a CAAFAG, which could thus act as an incentive for other children to also join the armed groups. If this happens, it could turn communities away from providing crucial support to the programs.


6. What roles could each ‘target groups identified for the assessment’ play in the children's return and reintegration process?

Majority of the groups thought that parents will have to play the main role in protecting and in facilitating the reintegration of the children. Communities were expected to facilitate in re establishing the social network of the returned CAAFAG and in creating an appropriate environment for the acceptance of the children. The SF’s and the CPNM’s roles are mentioned with regard to ensuring/guaranteeing security, securing a peaceful environment. The State is expected to introduce special policies and to elaborate a longterm community development and national reintegration plan for CAAFAG. The INGOs and NGOs are expected to support community initiatives, support child rights awareness programs, conduct mediation for the reintegration of the children in the communities, build the capacity of the community structure for the protection of the children, and to support reintegration facilities.

The role of child protection agencies is in the areas of advocacy and promoting respect of children’s rights and providing support services for the reintegration of children. The political parties' role is seen in building reconciliation at national and local levels, and creating an environment for both the parties to the conflict to solve issues through dialogues. The teachers are expected to facilitate the provision of education to the children without discrimination, and to prevent children from being associated with any political activities. They should encourage the children to study and to increase the quality of education in the schools.

The returned CAAFAG want to play a positive role for the development of their community and use their skills to support social activities, awareness, education, community work, women welfare support, etc. The children currently accommodated in transit centers and not yet been reintegrated into their communities have more difficulties in identifying their responsibilities. They appear to be more concerned about their own well being (study, daily life, etc.). However, some of them wanted to take part in community sensitization activities related to the prevention of the use of children by parties to the conflict by sharing their own experiences.

The CAAFAG want to serve the party and the people, bring changes and development in the country; they are also enthusiastic to become cultural artistes and community leaders after their return.

Analysis: The key to the success of reintegration process of returned children is the role that can be played by parents and communities. Although coordination amongst these players could be a challenge, their role should not be underestimated, and should rather be strengthened and buttressed. However, none of the groups see children as playing a direct role in their reintegration apart from their role in changing their own behavior and being cooperative, and the awareness programs need to address this issue.

What are the gaps revealed by the assessment? Ü Quantitative data: It is rather important to obtain as early as possible figures of

children who have been associated with armed groups and armed forces in order to plan appropriate and timely support. The CAAFAG WG need to work out collaboration with relevant authorities, namely the SF and the CPNM movement


along the current political evolution. The CAAFAG WG should obtain some complementary figures by asking families about their missing children.

Ü None of the groups interviewed in the assessment specifically mentioned existing support programs for returned CAAFAG even if some of the CAAFAG WG members have ongoing support programs at the districts where the assessments were conducted. Improved communication strategy should be developed with the aim of informing the target groups about the existing services.

Ü Further explorations are needed to identify existing coping mechanisms developed in the communities that could facilitate social acceptance during the returning process of children associated with the SF or the CPNM for a long period of time

Ü Explore the existing specific coping mechanisms or those to put in place for the acceptance of returning girls

Ü To assess the reasons why the returned CAAFAG have moved to India and the extent of the phenomenon

Ü To understand why CAAFAG used by SF were not identified as a specific concern by the community, families and children.


Listed below are the recommendations made by the CAAFAG working group members to the respective stakeholders.

1. Recommendations to Government authorities and Political Party members, CPNM and the SF

The recommendations are made to the leaders of the respective organizations for the policy level changes.

The recommendations are: • The rights of children below the age of 18 years as guaranteed by international law and

human rights instruments have to be a part of the Peace Agreement and the Human Rights Accords, signed between the government and the CPNM. Some specific guarantees to be obtained:

o Return and reintegration of all children from any groups related to the CPNM and the SF in close collaboration with Child Protection Organizations

o Commitment to stop the use and recruitment of children by both the parties o Commitment from all political actors to stop the use of children in demonstrations

and /or any political activities and the development of activities aiming at preventing the manipulation of children for political interests and the use of children in political activities. Parents have to exert their responsibility and indicate their consent for any activities carried out by their children. Schools to put in place safeguards to preserve a learning environment free from political interference.

o Release and safe return of children illegally kept in custody or captivity has to be ensured without delay

o Blanket Amnesty for children below 18, accompanied by mediation and reconciliation efforts to be put in place

o Government of Nepal to take steps towards the criminalization of the abduction, recruitment and use of children for military purposes, as well as the establishment of a Rules of Engagement for the SF specifically regarding children.

• Government, in collaboration with the CPNM, should elaborate longterm, midterm, and shortterm strategies for CAAFAG's reintegration and allocate sufficient funding. An integrated response mechanism of services available for the reunification and reintegration of CAAFAG could be a first step towards the implementation of a long term strategy. The Government could put in place a specific coordination body and appoint one governmental structure to deal with and coordinate interventions around the CAAFAG issue.

o Appoint high level qualified focal persons at the central level (with both the government and the CPNM)


o Replicate coordination mechanisms at regional and district level to assist the reintegration of CAAFAG and to serve as a place where the CAAFAG could report any perceived threats

o Create conducive reintegration environment by giving free access to schools to all CAAFAG and vulnerable children

o Coordination and collaboration with the CAAFAG working group • Guarantee to be obtained from both parties that there will be no threat (direct/indirect) to

the returned CAAFAG o A specific directive shared through a press statement could help convey the

instructions o Awareness raising and capacity building of field level Security Forces and

political cadres of eight political parties in child rights and return and reintegration of the CAAFAG

• Develop a monitoring/ support mechanism for the returned CAAFAG in collaboration with the CAAFAG WG

• Access of CAAFAG WG to cantonments and other places where the children are kept away from their families should be guaranteed

o There should be a child rights expert on the UN team that has access to the cantonment, and the child protection agencies should have access to the cantonment

o Put in place procedures/mechanism for age verification • PLA and Army and the Police should issue clear and detailed directives on CAAFAG

• Should appoint a senior level focal person for CAAFAG issues • Should establish strong coordination between SF, CPNM and CP organizations

2. Recommendations for the community group (Teachers/ men and women groups / CPC (CBO) and HRO)

School Managements / Teachers 1. Promote and implement non discriminatory teaching methods and relationships with the

students / pupils 2. Zerotolerance for discriminative behavior towards children in schools / and in class

rooms 3. Implement childcentered and childfriendly learning methodologies 4. Prevent corporal punishment 5. Try to explore the reasons for children's behavioral problems rather than blaming and

punishing them 6. Quality classroom management ( based on age, capacity and equal access) 7. Maximize the involvement of community in school management and organize periodical

interactions between teachers, students and parents 8. Ensure children’s consultation in the decisionmaking process at schools and facilitate

children’ involvement in the improvement of school environment 9. Teaching about peace and democratic practices 10. Refer needful children to existing / available services 11. Facilitate for extra support to the children with specific needs. e.g., support returned

CAAFAG who have gaps in education with admission and special tuition needs.


12. Protect children from political activities in schools 13. Psychosocial training for teachers in understanding the special psychosocial needs of

CAAFAG, or children who have witnessed acts of violence.

Men and women’s groups 1. Develop responsible initiatives towards the protection of children 2. Organize discussion within the community on CAAFAG’s reintegration and child

protection issues. 3. Include children in the decision making process within the families as well as within the

community management systems. Value the children’s potential and ensure that they contribute in peacebuilding initiatives and intergenerational dialogue

4. Get involved in school management committees 5. Take responsibility to prevent and eliminate any discrimination around the returned girls 6. Women / mothers' group should take lead role to make suitable environment for the

acceptance of the returned girls

Child Protection Committees, HROs, and CBOs and community networks The role of coordination and implementation at community level is a crucial one. The coordination of existing groups like teachers’ associations, school management committees, mothers’ groups, and men’s group can enhance each of these groups’ capacities, especially in dealing with child protection and CAAFAG’s reintegration issues. CBOs should identify the risk to the children, needs of the children and the possible solutions. They should link the needs of the children with the existing / available services in the community. The government, I/NGOs and HROs are advised to technically and financially support the coordinated efforts.

The recommendations are: 1. Continue asking for and negotiate the release of CAAFAG 2. Continue documenting and reporting the cases of child rights violations 3. Map out specific risks and needs of CAAFAG and develop concrete mitigation strategies

paying a specific attention to the girls and children from disadvantaged communities 4. Facilitate and negotiate with all groups including the CPNM and the SF to address

CAAFAG’s security concerns and other needs 5. Organize public dialogue at community level about expressed fears, apprehension and

concerns about the return of the CAAFAG 6. Facilitate the identification and the implementation of the community based child

programs

3. Recommendation for Donors/ International communities and CAAFAG Working Group

Donors/ International communities: 1. Make available immediate and flexible funding 2. Allocate funds for programs aiming at the longterm reintegration of the CAAFAG and

not just for their quick return. Ensure longterm funding support 3. Support government, civil society, and child protection agencies with funding 4. Coordinate funding to fill gaps, avoid competition and avoid duplication


5. Promote communitybased initiatives rather than programs promoting individual support 6. Funding for reintegration, prevention, sensitization, peace building and capacity building

of the CAAFAG 7. Consider children’s issues as a priority in all development, reconstruction and post

conflict programs 8. Exempt children from the terrorist tag that is preventing international financial support

via some donors to child reintegration initiatives 9. Mobilize Media/ communications regarding CAAFAG’s issues 10. Enhance monitoring and reporting/ international pressure and involvement 11. Implementation of the peace agreement 12. UN Specific: coordination among agencies 13. UN Specific (UNICEF): involve in direct negotiation with both the parties for access to

CAAFAG and in preparation of all implementing plan regarding CAAFAG 14. Support and enhance the security of the CAAFAG

CAAFAG Working Group 1. Collect figures (returned/ missing) 2. Collaborate with the government and the CPNM on CAAFAG’s issues 3. Harmonization of strategy and approaches among the CAFAAG WG members 4. Ensure and advocate for children’s active participation 5. Establish mechanisms for information sharing 6. Develop community participatory approach to reintegration; communitybased services

approach 7. Build on positive aspects and experiences of returned CAAFAG 8. Explore the girl CAAFAG challenges and solution for their acceptance 9. Explore alternative interim care capacities 10. Explore community approaches to accept children, especially girls/ community’s coping

mechanisms

4. Recommendations for children, parents, and the journalists

Children 1. Support awareness and sensitization to welcome CAAFAG 2. Nondiscrimination behavior towards CAAFAG or against children who have not

been part of the armed forces or armed groups 3. Involve the CAAFAG in group activities when they return: child's clubs, youth's

clubs… 4. Provide information regarding CAAFAG to the Human Rights and Child Protection

organizations, and help organizations in their reintegration 5. For CAAFAG: to return home and focus on their positive behavior 6. For Returned CAAFAG: to be a role model for CAAFAG and new comers / Peer

counseling,. Participate in the community awareness raising and reconciliation activities

Parents 1. Love and care, understanding and acceptance 2. Equal treatment in respect to gender and returned CAAFAG and other children


3. Motivation for education and other training 4. Focus on the positive aspects of CAAFAG 5. Raise awareness in the community 6. Education for the girls 7. Provide protection to the children 8. Give children an opportunity to express themselves and consult children within family

decision making 9. Ensure girls’ access to counseling and health services

Journalists 1. Raising community's awareness by highlighting political commitments, agreements

between parties as well as national strategy 2. Publish success stories about returned CAAFAG taking care in weighing the longterm

consequences about identifying the returned CAAFAG 3. Always put the best and longterm interest of children in the forefront while writing

about CAAFAG. Weighing the benefits/harm to society at large and to the CAAFAG in question.

4. Maintain confidentiality of the children: do not expose children to be targeted or stigmatized. Respect basic rules of not naming and not publishing pictures that could identify children

5. Do not take photos of CAAFAG – even if not for publication 6. Disseminate press releases and other support provided on CAAFAG issues 7. Create a common platform for children to express their position and their experiences

october 2006 - office of the united nations high ... · ingo international non governmental...

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