ÐÏà¡±á>þÿ <Fþÿÿÿ;xÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿÿì¥Áq` ø¿Z`bjbjqPqP *d::y?Ó ÿÿÿÿÿÿ¤F^4’’’¦ªªª8âþ,¦Ë"ò6LLLLL~Ê,ö&"("("("("("("$½#h%&|L"9’”LL””L"’’LL…"ªªª”¾’L’L&"ª”&"ªªê€’’Â!L*Ñó,±ÄªRj!,â!D›"0Ë"–!,¡&R¡&XÂ!¡&’Â! "ª0<XL"L"RXË"””””¦¦¦ª¦¦¦ª¦¦¦’’’’’’ÿÿÿÿ EMBED Word.Picture.8 The European Initiative for Democracy and Human Rights – Mainstreaming Children’s Rights This paper is a briefing on children’s rights and EU external action, with specific focus on the European Initiative on Democracy and Human Rights. The paper also offers some ideas and recommendations - based on Save the Children’s experience and research on children’s rights policies and implementation - for the integration of children’s rights under the European Initiative on Democracy and Human Rights. Summary of main conclusions and recommendations The 2001 policy of mainstreaming children’s right under the European Initiative for Democracy and Human Rights (EIDHR) has, unfortunately, not led to an improvement of the promotion of children’s rights. This has to do mainly with the drawbacks of mainstreaming in terms of implementation and the loss of specific funding for the furtherance of children’s rights. Lately there have been a number of studies that question the effectiveness of mainstreaming. For instance, a recent study by Aprodev and One World Action on mainstreaming of gender in the EU policies finds that mainstreaming is "more an idea than a reality". Save the Children’s recent study "Invisible Children?: Towards integration of children’s rights in EU and member states development cooperation policy" comes to the same conclusion when it comes to children’s rights. EC staff that were interviewed in these studies were often confused about the meaning of mainstreaming and how it should be carried out. They also pointed to the fact that instruments for implementation are lacking or inadequate. The result of these studies is supported by the Commission conclusion that in project applications to the EIDHR were children do not form a specific target group, “children’s rights were often mentioned in a superficial manner”. This is a clear indication that mainstreaming does not work. Without concrete measures to support mainstreaming, children’s rights will not gain the attention it deserves under the European Initiative for Democracy and Human Rights, as delegations and desk officers will continue to attach a low priority to these issues. Mainstreaming should not mean that children’s rights becomes a line in a project proposal – if there is to be any sense in mainstreaming at all, it should make a qualitative and meaningful difference for children and their human rights. The Commission needs to clarify what it actually wants to achieve in terms of mainstreaming of children’s rights, and put appropriate measures in place to support this. Although the new policy to mainstream children’s rights has not resulted in a complete disappearance of projects in support of children’s rights, there has been a drastic decrease in project with a child rights focus. More importantly, it is no longer possible to fund projects dedicated to the advancement of children’s rights outside the four priorities set in the 2001 Communication. This means that there is now no specific funding from the EU that supports direct promotion and implementation of the UN Convention of the Rights of the Child. Invisible Children? - Children’s Rights and EU external action A recent study by the European Parliament on integrating children’s rights and the EU development policy concludes that “the present actions by the EU to promote children’s rights and meet the needs of children in developing countries are inadequate and fall far short of the commitments that should be taken to address children’s rights…”. Save the Children’s recent study on children’s rights in the EU’s and member states’ Development Policy comes to a similar conclusion. The study found that some policy and programme initiatives do focus on children, address their needs and promote their rights. However, optimal policies for integrating children’s rights into development co-operation policies are yet to be defined. The policy of mainstreaming children’s rights and the belief that projects that target adults and communities cater for children and their rights, turned out to be the most pertinent obstacles to making children visible in the EC development policy. In a letter to the European Voice, Commissioner Nielson stated that children do not form a specific target group, and that children’s rights are not considered as a separate area of attention. It is tempting for policy makers to assume that children and children’s rights can be addressed within the policies and actions targeted at adults, families and communities in which children live. However, it is not the case that children’s and adults’ needs are always the same, the frequently differ and sometimes clash. Such an approach is also based on the assumption that adults can adequately express children’s needs and interests, which is not always true, and often results in a failure of consulting children directly. Moreover, an increasing number of children no longer live in households, in house-holds headed by adults or in communities that protect and promote their rights. Even though children’s rights have been identified as one of the thematic areas along with human rights, gender and environment, to be mainstreamed in the EU’s development policy, children’s rights are surprisingly and notably absent in action programmes, regulations and Country Strategy Papers. In the 2003 Programme of Action for the implementation of EC development policy, activities are defined for human rights, gender and the environment. Children’s rights do not appear once in this document, although they are explicitly stated as a concern for mainstreaming in the 2000 EC development policy. A recent analysis by Save the Children of the treatment of children’s rights in a large number of Country Strategy Papers reveal little reference to children’s rights and even to children. Where references do appear, they are of a standard nature, and are primarily found in the analysis or policy background sections. They are rarely translated into any strategy and very seldom appear in the National Indicative Programs, even in papers where abuse of children’s rights is explicitly mentioned as a problem in the background section. In 2003, children have become one of the three specific themes of focus of the ECHO strategy. Projects will include protection and registration of refugees with a main focus on children; data collection on children affected by armed conflicts; and actions to address measles. By introducing these priorities, ECHO has shown that mainstreaming can and should be coupled with prioritisation. Perhaps even more important, ECHO is also planning to work more with the rights-based approach. Should this happen, ECHO would introduce for the first time something that many of the member states already have shown, not only is “do-able”, but also an extremely effective and efficient way of improving the lives of children in developing countries and in emergencies. The European Parliament Development Committee has shown great interest and commitment to children’s rights. Save the Children welcomes the Development Committees efforts to integrate children’s rights into the EU budget and its call on Commissioner Patten to reinstate children’s rights as a priority under the European Initiative for Democracy and Human Rights. Save the Children also welcomed two recent resolutions from the European Parliament which have made strong calls for double-track approaches to address children’s rights in the EU’s development policy. Save the Children support these calls from the European Parliament, since we believe that mainstreaming of children’s rights can make an important difference if it is supported by proper tools for implementation and combined with specific funding aimed at promotion and implementation of children’s rights as set out in the UN Convention of the Rights of the Child. Mainstreaming Children’s Rights in the European Initiative for Democracy and Human Rights The 2001 Commission Communication on human rights and democratisation determined that funding under the European Initiative for Democracy and Human Rights should focus on four core priorities: strengthening of democracy, good governance and the rule of law; abolition of the death penalty; fight against torture and impunity and for international tribunals and criminal courts and; combating racism and xenophobia and discrimination against minorities and indigenous peoples. The Communication also established that children’s rights should be mainstreamed in all the priorities. Prior to this Communication, projects to promote children’s rights were specifically supported under the European Initiative for Human Rights. In 2000, approximately 10% of the total budget over ¬ 9 million were dedicated to such projects. The new policy of mainstreaming children s right has, unfortunately, not led to an improvement of the promotion of children’s rights under the European Initiative for Democracy and Human Rights. This has to do mainly with the drawbacks of mainstreaming in terms of implementation and the loss of specific funding for the furtherance of children’s rights. The drawbacks of mainstreaming The policy of mainstreaming children’s rights in the European Initiative for Democracy and Human Rights, means that children’s rights is seen as a “cross-cutting issue”, which must be reflected in all the activities which it supports. This in turn means that all proposals for funding must include a “perspective relevant” to children’s rights, which will be assessed in the course of the evaluation of applications. However, lately there have been a number of studies that question the effectiveness of mainstreaming. For instance, a recent study by Aprodev and One World Action on mainstreaming of gender in the EU policies finds that mainstreaming is “more an idea than a reality”. Save the Children’s recent study “Invisible Children?: Towards integration of children’s rights in EU and member states development cooperation policy” comes to the same conclusion when it comes to children’s rights. EC staff that were interviewed in these studies were often confused about the meaning of mainstreaming and how it should be carried out. They also pointed to the fact that instruments for implementation are lacking or inadequate. As for the European Initiative for Democracy and Human Rights, a specific section was inserted in the published evaluation grid for all thematic calls, which offers a maximum of 5 points (out of the maximum total score of 100) for an assessment of the extent to which “the proposal contain(s) specific elements of added value, such as innovative approaches, models for good practice, promotion of the rights of children”. However, in order to make an adequate assessment of whether a project actually does promote children’s rights in a meaningful way, staff would need training in children’s rights and concrete guidelines and indicators. Moreover, there would need to be concrete tools for monitoring and evaluation, as well as child impact assessments. Save the Children’s study “Invisible Children” provides a list of recommendations as to how mainstreaming can be made more meaningful, effective and efficient, based on examples of good practice from 9 EU member states and Norway. These include: Publication of guidelines and action plans for mainstreaming of children’s rights; Creating an organisational set up that supports an orientation towards children and their human rights; Training of staff in children’s rights; Development and introduction of child impact assessments; Specific targeting in terms of projects, campaigns, research etc; and Consultation with civil society organisations representing children. Without such concrete measures to support mainstreaming, children’s rights will not gain the attention it deserves under the European Initiative for Democracy and Human Rights, as delegations and desk officers will continue to attach a low priority to these issues. Mainstreaming should not mean that children’s rights becomes a line in a project proposal – if there is to be any sense in mainstreaming at all, it should make a qualitative and meaningful difference for children and their human rights. We believe that the Commission needs to clarify what it actually wants to achieve in terms of mainstreaming of children’s rights, and put appropriate measures in place to support this. Therefore, Save the Children has welcomed the initiative of the Commission to reflect on the policy and practice of mainstreaming children’s rights in relation to the strategic planning and programming of the European Initiative for Democracy and Human Rights beyond 2004. The loss of a specific focus on Children’s Rights Although the new policy to mainstream children’s rights has not resulted in a complete disappearance of projects in support of children’s rights, there has been a drastic decrease in project with a child rights focus. More importantly, it is no longer possible to fund projects dedicated to the advancement of children’s rights outside the four priorities set in the 2001 Communication. This means that there is now no specific funding from the EU that supports direct promotion and implementation of the UN Convention of the Rights of the Child. Many applicants whose projects were selected under the EIDHR Calls last year attempted to address children’s rights. However, in projects were children do not form a specific target group, children’s rights were often mentioned in a superficial manner, leaving one to question the effectiveness of mainstreaming children’s rights. Moreover, if only the projects were children actually are directly addressed take children’s rights into proper consideration, the constraint that the four priorities set on the furtherance of children’s rights is an important obstacle to addressing children and their specific human rights. Promoting Children’s Rights under the EIDHR At a first glance, the Convention on the Rights of the Child is noticeable for the 41 individual articles that incorporates the whole spectrum of children’s specific human rights – civil, political, economic, social and cultural – which also set out the specific ways in which these should be available to children. However, the Convention on the Rights of the Child has a broader vision in that is sees children as full human beings, rights-holders who can play an active part in the enjoyment of their rights. Children are not – as they have often been presented in the past – mere dependants, the property of their parents. Children’s views and opinions are significant – and they are not to be seen merely as victims, workers, young offenders, pupils or consumers, but as complex and fully rounded individuals. The Convention on the Rights of the Child also sees children as active members of their local communities, they contribute their labour and play an important role in cultural activities. Societies have obligations towards the children. The European Initiative for Democracy and Human Rights has a special value in that it aims to strengthen international law and support operations that focus on “those discriminated against or suffering from poverty or disadvantage, children, …”. It can play a special role in promoting the UN Convention of the Rights of the Child, and work towards its implementation – improving the lives of millions of children. There is no other EU activity or budget line with the specific aim of promoting the UN Convention of the Rights of the Child, and children’s rights remain invisible in EU’s development co-operation policies. Yet, promoting the Convention of the Rights of the Child has the potential of improving the lives, opportunities and development of all children all over the world, taking into account the principles of non-discrimination, participation, the best interest of the child and the right to development. Olivia Lind Haldorsson Save the Children Brussels 30 September 2003 Contact Details: Save the Children Rue Montoyer 39 1000 Brussels Tel +32 (0)2 512 78 51 Fax +32 (0)2 513 4903 Email: savechildbru@skynet.be Assessing Gender Mainstreaming in EC Development Cooperation”, Aprodev and One World Action 2002. European Parliament Report on Integrating Children in the Development Policy of the European Union, DG IV Internal Study IV/2003/14/02 WIP: 2003-02-0146 14 July 2003 Invisible Children: Towards Integration of Children’s Rights in EU and Member States’s Development Policies, Save the Children 2003 Invisible Children: Towards Integration of Children’s Rights in EU and Member States’s Development Policies, Save the Children 2003 European Voice, 13-19 February 2003 In their statement of 2000, the Council and Commission affirm that children’s rights should be mainstreamed in the European Community development co-operation policy. Point 20 says that the Commission needs to “mainstream concerns comprising the promotion of human rights, equality between men and women, children’s rights and the environmental dimension. EP Resolution on Trafficking in children and child soldiers (B5-0320/2003), EP Annual Report on human rights in the world in 2002 and European Union’s human rights policy (A5-0274/2003) Commission Communication on human rights and democratisation (COM (2001) 252) May 2001 Assessing Gender Mainstreaming in EC Development Cooperation”, Aprodev and One World Action 2002. Children’s Rights: Reality or Rhetoric? 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