Irish Red Cross RFL strategy

RestoringFamily Links

Strategy 2011-2016

“The Irish Red Cross recognises that maintaining links with family members is one of the most fundemental rights of any person”

Contents

Foreword

Acknowledgements

Executive Summary

Glossary

Introduction

Context

Restoring Family Links Roles and Responsibilities

Work of the Irish Red Cross Restoring Family Links Unit

Purpose and Structure of the RFL Strategy

The Restoring Family Links Vision

Challenges

Strategic Approach

RFL Strategic Actions

Summary of Restoring Family Links Strategic Actions: Milestones

Implementation

Breakdown of Demand for Irish Red Cross RFL Services 2005-2009

Monitoring and Evaluation of Implementation of the Strategy

Conclusion

Appendix 1:

Appendix 2:

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Ali’s Story

My name is Ali. There has been fighting in my country for many years and I tried not to be involved. I just worked in my grocery shop to take care of my wife and family. One evening when I was closing up two men approached me. They were from the authorities and told me that they had been watching me and were taking me to the police station as they said I had been involved with a group that opposed the government. I told them that this was a mistake and that I was just a shop keeper.

They didn’t listen.

My wife held on to me crying and begging them not to take me away. They paid no attention and arrested me. As we drove away I looked back to see my wife in tears. There was nothing I could do. I spent many months in prison wondering if I would ever see my family again. I was frightened and was in deep despair. Just as I was giving up hope, a guard appeared and told me to go. I asked no questions, left and went to try and find my family at our shop but they were gone. I was distressed as I wanted to find them. I saw my friend in town and asked him if he knew where my family had gone. He told me that my wife was now living with her parents. I was happy to be with my family but I knew I would have to leave them again.

We used all our money and I paid an agent to take me to Europe. When I arrived in Ireland I sought and was granted asylum. It took many years. I then applied for my family to join me. It was a happy day when I got the letter to say they could come. I had heard about another man who had got assistance from the Red Cross and decided to ask them if they could help me.

I am so grateful to the Red Cross that my family are with me now and that we can be together without fear of persecution.

FAmIly ReunIFICATIon

4

“It was a happy day when I got the

letter to say they could come”

Name and photograph changed to preserve anonymity

The Irish Red Cross (IRC) recognises that maintaining links with family members is one of the most fundamental rights of any person. Sometimes, through no fault of our own, these links become broken and lives get torn apart. Everything must be done to re-establish these links and restore contact between family members. Over the next five years, the Irish Red Cross will embark on the implementation and regionalisation of our Restoring Family Links (RFL) services at home, working in collaboration with our volunteers and colleagues in our sister societies. We hope to provide a service which reflects best practice, serves individual needs with efficiency, compassion and understanding and play our part internationally as partners in the RFL activities of the wider Red Cross Red Crescent Movement and with Irish statutory authorities and other bodies in Ireland. As an Auxiliary to the Irish Government in the provision of humanitarian services, we will liaise closely with relevant Ministries, and act in accordance with our seven Fundamental Principles.

At the 30th International Conference of the Red Cross and the Red Crescent Societies in 2007, the Irish Red Cross pledged to promote partnerships and increase cooperation in the area of Restoring Family Links including through raising awareness and understanding of our RFL services among refugees, asylum seekers, migrants and other persons affected by disaster or armed conflict. Resolution 4 of the Council of Delegates of that same International Conference adopted an RFL Strategy (and implementation plan) 2008-2018 for the Movement’s Family Links Network, which is comprised of the National Societies tracing services, the tracing services of the International Committee of the Red Cross (ICRC) Delegations and the ICRC’s Central Tracing Agency.

The aim of this 10 year strategy is to improve the services provided by the Movement’s RFL Network in meeting the needs of people separated from their families. The Movement has long-standing experience and extensive expertise in restoring family links. Through our Family Links Network, we are able to provide services across national borders in full transparency and with the consent of the authorities concerned and are best placed to assist people who are separated from their families, wherever they may be.

In conclusion, the Irish Red Cross must, in this ever-changing world, continue to respond to the needs of those who have lost contact with family members because of armed conflict and other situations of violence, the increase in the number of natural and manmade disasters and as a consequence of internal displacement or migration. We must challenge ourselves as volunteers and staff to offer the most professional and efficient service to those who need it, enabling us to continue to be proud of our National Society, and the part that it plays both nationally and internationally in restoring contact between family members.

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ForewordThe ratification of the Irish Red Cross Restoring Family Links (RFL) Strategy 2011 - 2016 by the Society’s Executive Committee in November 2010 was an important and significant development representing as it did the first time that the Society had developed a strategy solely dedicated to its RFL services. The adoption of this strategy is intended to inform and guide the development of our RFL activities over the 5-year period to 2016 in order to reduce human suffering as a consequence of separation due to war or natural disasters.

“The aim of our strategy is to improve services”

David J. O’Callaghan, Chairman

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The extensive research and development of the RFL Strategy was undertaken by Mr. Philip Berman. Philip is but one of 5,600 dedicated Irish Red Cross Volunteers and gave freely of his time in this piece of work. The Irish Red Cross would like to acknowledge Philip’s contribution and his continued time, professionalism and energetic approach in support of the RFL activities of Irish Red Cross.

We would also like to acknowledge the contribution and advice of our colleagues at the Central Tracing Agency (CTA) & Protection Division, ICRC: Mr. Olivier Dubois, Deputy Head of the CTA and Protection Division, ICRC and to his colleagues Yves-Jean Dumeril, Head of Project, CTA & Protection Division, Dusan Vujasanin, Adviser, CTA & Protection Division, Annika Norlin Stillhart, CTA & Protection Division, Christina Oberli, Deputy Head of Operations Western Europe, ICRC. Their contributions are greatly appreciated.

Thanks also goes to our colleagues at the International Federation of Red Cross and Red Crescent Societies (IFRC) for their input into the strategy: Simon Eccleshall, Head, Disaster Services Department; Geri Lau, Head, National Society Development Department and David Lynch, Disaster Management, IFRC Europe Zone Office, Budapest.

Particular gratitude is also due to Mr. Neville Jefferies, Head of the International Tracing and Messaging Service (ITMS) at British Red Cross, and his colleagues for their continued support.

At Irish Red Cross in Dublin, special recognition is due to Jennifer Wilson of the Irish Red Cross RFL Unit for her often unseen duty of care to all of those who avail of our RFL services and ensuring that RFL remains a critical and essential programme at the heart of Irish Red Cross activities. A note of thanks too to all the other staff and volunteers at Irish Red Cross who have been so supportive in developing this strategy.

Finally, recognition is given to the Irish Red Cross Executive Committee for their vision and commitment in highlighting the important role that RFL plays in meeting the needs of RFL service clients in Ireland and around the world.

Restoring Family Links Strategy 2011-2016

AcknowledgementsThe Irish Red Cross would like to extend special thanks to those who have assisted with the research and development of this Restoring Family Links (RFL) Strategy 2011-2016.

executive Summary

The personal stories in this document demonstrate the situations to which the Restoring Family Links (RFL) Unit of Irish Red Cross responds, and the impact of the service. This strategy provides a framework for the development of the Irish Red Cross RFL activities over the next five years. On the basis of a review of current activities it develops a set of strategic actions which will ensure that the IRC can meet the needs of those seperated as a result of war or natural disaster.

1 Restoring Family Links (RFL) is a key role for all National Red Cross and Red Crescent Societies, mandated under the Geneva Conventions.

2 The Irish Red Cross (IRC) pledged, at the 30th International Conference of the Red Cross and the Red Crescent, to promote partnerships and increase our cooperation in the area of Restoring Family including by means of promotion of RFL services.

3 The ICRC Restoring Family Link Strategy 2008-2018 provides a valuable template for the IRC, particularly since the ICRC and the National Societies have to act in concert if RFL is to be effective.

4 The IRC RFL unit has three principal activities – tracing, messaging, and family reunification travel assistance.

5 An analysis of tracing requests demonstrates that such requests relate to conflict and natural disaster and, since neither is predictable, the IRC’s RFL service must remain in a state of constant preparedness to cope with unexpected demand.

6 Our RFL vision is to provide a service which reflects best practice, serving individual needs with efficiency, compassion and understanding, playing our part as partners in RFL activities of the Movement, and working with the statutory authorities and other bodies in Ireland.

7 17 strategic actions are identified as milestones to be implemented over the period 2011-2016. Key features include:

› The regionalisation of our RFL services to make them more accessible to potential service users;

› The involvement of IRC volunteers in the provision of RFL services, particularly in the regional centres;

› Training of volunteers in RFL activities;

› Collaboration with other National Societies on RFL activities;

› Use of new ICRC methods and new technologies;

› Launch of a communications initiative to publicise the IRC’s RFL activities to the public;

› Development of a fundraising plan of action for RFL activities;

› Launch of an RFL information programme for IRC staff and volunteers;

› Closer collaboration with ICRC and IFRC on RFL policy;

› Closer collaboration with other Non-Governmental Organisations (NGOs) to ensure effective use of resources;

› Provision of advice on State policy and practice in matters related to RFL, in our role as auxiliary to the national authorities in humanitarian affairs.

8 An implementation programme will be developed in 2011.

9 The strategy will be monitored with evaluations undertaken on the basis of the milestones, in 2013 and 2015, and an annual report will be made to the Executive Board of Irish Red Cross.

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GlossaryEU: European Union

CTA: Central Tracing Agency

ICRC: International Committee of the Red Cross

IFRC: International Federation of Red Cross and Red Crescent Societies

IRC: Irish Red Cross

NGOs: Non-Governmental Organisations

IOM: International Organization for Migration

RFL: Restoring Family Links

UNHCR: United Nations High Commissioner for Refugees


“They were very kindbut I was very sad because I did not know what had happened to my family.”


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Abdul’s Story I left my country when I was 14 with my parents and two younger brothers. My father was in trouble with the police for not supporting those in power. He told us we had to leave and go to a new place where we could live without fear and be all safe together. He paid a man all the money

we had to take us to Europe.

The man did not say very much but told us to get into a large truck. We travelled for hours and it was very hot and we had little food and water. Just before we reached the border with Turkey the man told us that we would now be travelling by car. One of the men took me by the arm and directed me to a different car to the one my family were in. I told the man I wanted to be with my parents but he insisted that I travel in the other car. My father told me not to worry that we were all going to the same destination. There was another man and a woman who travelled in the car with me. We were ahead as we reached the border. We were allowed to cross but as we travelled on I saw that the car my family were in had been stopped. I felt something was wrong. When we reached our destination the man took us to a room. He gave us some bread and water. We stayed in that room for three days until it was safe for us to move again. I asked the man what had happened to my parents but he said he didn’t know.

I was brought to Ireland and left outside a big building. The man told me to wait in the queue and when I got inside the people would help me. I was sent to a hostel and a social worker talked to me about how I got here. I told her I missed my family and she filled in a Red Cross tracing form for me. After a long time the Red Cross told me that they could not find my family. I left the hostel and went to live with an Irish family. My Irish mother said that we should try to go to the Red Cross again and ask if there was anything they could do to help. We met the lady there and she asked us to fill in the Red Cross forms again. I wrote a message to my aunt and uncle in Iraq too.

After a few months the lady from the Red Cross told me that they had found my aunt and uncle. I was excited and happy and talked to them on the phone. They told me that they had not heard anything about my family and did not know where they were. I was able to keep in contact with my aunt and uncle and thank the Red Cross for their help.

TRACInG

The proposed strategy is intended to respond to the following key challenges:

› The need to act more effectively in partnership within the Red Cross Movement;

› The need to adopt new RFL methods and technologies;

› The need to raise the profile of Irish Red Cross RFL both internally and externally;

› The need to relate better to relevant State agencies and NGOs;

› The need to develop outreach services for RFL beneficiaries.

“Restoring Family Links” aims to prevent separation and disappearance, restore and maintain contact between family members, and clarify the fate of persons reported missing. It involves collecting information about people who are missing or imprisoned, who have died, as well as vulnerable people, such as separated children. It also involves tracing persons unaccounted for, organising the exchange of family news and the transmission of documents when normal means of communication have broken down, organising family reunifications and repatriations, and issuing travel documents and attestations.

These activities are carried out by the worldwide Family Links Network, which involves the International Committee of the Red Cross (ICRC)1

and the tracing services of the Red Cross and Red Crescent National Societies. Respect for the family’s unity goes hand in hand with respect for human dignity. Every year, the ICRC and the Red Cross and Red Crescent National Societies help hundreds of thousands of people (displaced persons, refugees, detainees and missing persons) to restore family links and to clarify the fate of missing relatives.

The Restoring Family Links Strategy for the Movement2 was presented to the 2007 Council of Delegates3. The following extracts from speeches made at this session make a compelling case for the Irish Red Cross to play its due role in Restoring Family Links:

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1 The International Committee of the Red Cross is an independent, neutral organisation ensuring humanitarian protection and assistance for victims of war and other situations of violence. The ICRC has a permanent mandate under international law to take impartial action for prisoners, the wounded and sick, and civilians affected by conflict.2 The 186 National Red Cross and Red Crescent Societies, the International Committee of the Red Cross and the International Federation of Red Cross and Red Crescent Societies together constitute the International Red Cross and Red Crescent Movement.3 The Council of Delegates is the body where the representatives of all the components of the Red Cross Red Crescent Movement (ICRC, IFRC and National Societies) meet to discuss matters which concern the Movement as a whole.

Introduction

Every year, armed conflicts, other situations of violence and natural disasters leave countless people seeking news of family members. The Irish Red Cross is a member of the International Red Cross and Red Crescent Movement’s worldwide Family Links Network that aims to prevent separation and disappearance, restore and maintain contact between family members, and clarify the fate of persons reported missing. A network is effectively a complex chain, and any chain depends upon the strength of its constituent parts. If family links are to be restored, it is essential that the Irish Red Cross should play its part by helping families or individuals in Ireland who have lost contact with their relatives in other parts of the globe.

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Despite the significant and often unpredictable security constraints facing our staff and volunteers in the field, we have been able to operate across all parts of the country – creating essential humanitarian space for our activities. Restoring family links crosses any divide, any social, cultural or political affiliation. It is a service that relies on the dedication and commitment of volunteers to reach out to people affected.

To be able to reach out and meet the needs of separated people we have to see ourselves in a broader context than only our own. How else can we reunite a family when some of them are in neighbouring countries or abroad? We rely on both the ICRC and other National Societies in this Movement network.

The importance of the RFL Strategy is multi-faceted and goes to the heart of the issues. It addresses the family needs of victims that are just as important as food and security. It covers all our situations of humanitarian action – from conflicts to natural disasters to the mass movement of populations. It calls for individual identification of family links needs within an environment of collective action.

Dr. Ahmed HassanPresident, Somali Red Crescent Society

The suffering of those who have no news of their families touches the core of all of us within the Movement. RFL is a key element of the ICRC’s humanitarian mission and forms a vital part of our action and partnerships with National Societies.Behind every single RFL activity there is an individual with a life and family – this is something of which we must never lose sight…

…RFL is a responsibility that we all share. We have a unique role to play and it is time to do more about it.

Mr. Olivier VodozVice-President of the ICRC

The essential human right of retaining links to one’s family is of increasing importance to the International Federation and National Societies at a time when we are witnessing a dramatic increase in the number of natural disasters. Each of these disasters contains risks for family separation.

Mr. Shimelis AdugnaVice-President, International Federation


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Furthermore, in the preamble to Resolution 4 of the 30th International Conference of the Red Cross and Red Crescent, the responsibility of each component of the Movement (including the Irish Red Cross as a member of the Movement) to help in the restoration or maintenance of contact between separated members of families was reiterated. It also recalled that the Central Tracing Agency 6 (CTA) of the ICRC plays a role as coordinator and technical adviser to National Societies – a resource that is thus available to the Irish Red Cross.

In reaffirming the commitment of the Movement to RFL, reinforcing its resolve to stay the leader in this field, and adopting the ICRC Restoring Family Links Strategy (and implementation plan) 2008-2018, the preamble calls upon National Societies to:

a promote knowledge and understanding of this [RFL] Strategy at all levels of their respective organisations,

b implement the actions outlined in this Strategy as part of their organisational strategies and plans at national, regional and international levels,

c allocate the necessary resources to carry them out.

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We, National Red Cross Societies of the Member States of the European Union and Norway 5, hereby pledge to promote partnerships and increase our cooperation in the area of Restoring Family Links (RFL). To this end we will maximise the use of modern information technologies. Through joint efforts, based on the Movement’s strategy and our position paper Restoring Family Links - roles of the International Red Cross and Red Crescent Movement, we will seek increased recognition of our services at EU and national levels. We will promote RFL services across Europe among refugees, asylum seekers and migrants and, when relevant, other persons affected by disaster or an armed conflict.

4 The International Conference is the supreme deliberative body for the Movement. It gathers the representatives of the components of the Movement and the representatives of the 194 States (as of October 2010) Party to the Geneva Conventions. Together they examine and decide upon humanitarian matters of common interest and any other related matter.5 Norwegian Red Cross collaborates closely with European Union (EU) National Societies.6 The Central Tracing Agency and Protection Division of the ICRC provides strategic support and professional expertise to field operations in three areas of activity – protection of the civilian population, protection of people deprived of their freedom and restoring family links; the latter also covers activities relating to missing persons and their families.

Context

At the 30th International Conference4 of the Red Cross and Red Crescent (Geneva, 26-30 November, 2007) the Irish Red Cross pledged that:

“

”

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The RFL goals of the Irish Red Cross should therefore address the strategic objectives as established in the ICRC Restoring Family Links Strategy (and implementation plan) 2008-2018:

Strategic Objective 1:

Improving restoring family links capacity and performance

Building a Family Links Network that is robust and meets the needs of affected individuals and populations requires medium and long-term investment in order to enhance and effectively utilise skills and resources. Building capacity requires coherent methodology, effective mobilisation of human resources, training and systematic exchange of information to ensure that the best practices are employed.

The Movement must also better understand the environment in which it works and be able to adapt and fully utilise modern technologies.


Enhancing coordination and intra-Movement cooperation

The Movement’s ability to effectively meet the needs of people separated from their families depends on the efficiency and effectiveness of the Family Links Network.

Improving capacity to respond rapidly in emergencies, enhancing functional cooperation and coordination within the Movement at all times and strengthening interaction with the authorities and other organisations will improve performance across the Network.

As coordinator of the Family Links Network, the ICRC draws more than previously on National Society contributions to build capacity, strengthen regional linkages and share responsibility for building a stronger Network.


Strengthening support for restoring family links

The Movement is in a unique position to conduct RFL since it is the only organisation having a worldwide network with the potential to aid affected individuals and populations everywhere. To lead in the field of RFL, the Movement must place its work on a solid foundation, encourage and motivate staff and volunteers to adopt its vision and practices, and improve communication so as to assume a commanding position in the humanitarian sector.

The Movement can enhance its leading role in RFL by strengthening its components. For the Family Links Network, building capacity means investing in the development and strategic orientation of RFL activities. The Implementation Plan for the RFL Strategy focuses on the following actions:

› Understanding RFL and the related needs of separated and missing people;

› Strengthening programme ownership for RFL activities;

› Raising the profile of RFL and enhancing its positioning;

› Improving RFL capability and services;

› Improving cooperation between National Societies and across the Network as a whole.

This Irish Red Cross RFL strategy draws heavily on the ICRC Restoring Family Links Strategy (and implementation plan) 2008-2018 since the ICRC strategy effectively provides a template for National Societies. While the strategy is consistent with the Movement strategy, it is based both on our statutory obligations and on the needs/demands for our services, as evidenced by the consultation process that has been completed.

This strategy not only seeks to fulfil the obligations made in the pledge but, more importantly, it is an attempt to ensure that the Irish Red Cross serves the very real needs of those members of our increasingly multi-national community who are suffering because the links with their families have been broken.


Chantal’s Story

I am 30 years old and my name is Chantal. Before I came to Ireland I was a student and a mother to my daughter whom I have not seen for 5 years. She was five years old when I left her with my mother and father. I do not agree with the way the Government of my country treats its people. This is why I got involved with the opposition group in

my country.

This caused many problems for my family. My father and mother could not work and had to hide, moving from one place to another. They relied a lot on my aunts and uncles to look after them and my daughter. My mother became sick and could not take care of my daughter anymore.

One day I came home from school and the soldiers were there. When I was arrested, I was separated from my daughter, and they sent me to a prison. I stayed there for 8 weeks. It wasn’t a nice place and I don’t like to talk about the things that I saw there. My uncle paid the guard and arranged for me to leave my country and come to Ireland.

It was very strange to be alone here and I missed my daughter and desperately wanted her with me. It took a long time but my daughter is now with me thanks to the Red Cross Travel Assistance Programme. My only regret is that I will never see my parents again as I can never go back to my country.

FAmIly ReunIFICATIon

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“It was very strange to be alone here and

I missed my daughter and desperately

wanted her with me.”


RFl Roles and Responsibilities 7,8

1. Responsibilities of the authorities

Under international law, everyone has the right to know what has happened to missing relatives and to communicate with family members from whom they have been separated. Primary responsibility for ensuring that these rights are respected lies with State authorities (including armed security forces) and, in situations of armed conflict, any other organised armed groups. When the authorities (or organised armed groups) do not fulfil their responsibilities, the National Societies or the ICRC may offer their services based on their respective roles and responsibilities, the relevant legal provisions and in compliance with Movement resolutions (see below) and agreements. This offer may range from limited support to authorities to acting as a substitute for them.

Whatever activities the Movement carries out, the roles and ultimate responsibility of the authorities with regards to the population and the rule of law must be fully respected.

2. The role of the ICRC

As a neutral and independent organisation, the ICRC protects and assists the victims of international and non-international armed conflicts and other situations of violence. Article 5.3 of the Movement’s Statutes expands this role to include other types of situation, and establishes a permanent basis on which the ICRC can take any humanitarian initiative compatible with its status as a specifically neutral and independent organisation and intermediary.

The ICRC has the important task of reminding the authorities of their obligations under international humanitarian law and other relevant bodies of law with regard to family links, and carrying out activities when and for as long as required and possible.

In addition to its operational responsibilities the ICRC, through the CTA, coordinates, advises and strengthens the capacity of its partners within the Movement in RFL matters, promotes consistency within the Family News Network and provides the National Societies with methods and guidelines9.

The ICRC decides what RFL action is to be taken in armed conflicts or other situations of violence. In other circumstances requiring an international effort, it coordinates the activities of the global Family Links Network10, to ensure the most effective possible response to RFL needs.

3. The role of National Societies

The functions of the National Societies are set out in Article 3 of the Movement’s11 Statutes. National Societies carry out their humanitarian activities in conformity with their own statutes and national legislation and act as auxiliaries to their national authorities in the humanitarian field. Their role is in particular to assist the victims of armed conflict as stipulated by the Geneva Conventions, and the victims of natural disasters and other emergencies who need help (Articles 3.1 and 3.2). As outlined in Resolution XVI of the 25th International Conference of the Red Cross and Red Crescent12, National Societies have an important role as components of the international network for tracing and reuniting families.

National Societies maintain their response as long as needs exist, and this may extend well beyond the end of a conflict, natural or man-made disaster, or other emergency. National Societies are responsible for incorporating RFL activities into their overall plans and they may need to draw the attention of the public, humanitarian agencies and governments to the existence and significance of their RFL activities.

Individual National Societies are responsible for establishing an effective national RFL network. They determine what action is to be taken during national disasters and may call on the CTA when the RFL response requires an international effort.

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7 Restoring Family Links in Disasters. Field Manual. ICRC, August, 2009.8 For details of the legal basis and role of the Movement’s components in RFL, see Appendix.9 For example, Restoring Family Links: A Guide for National Red Cross and Red Crescent Societies (ICRC, November 2000) and the Recommendations and Conclusions of the International Conference of Governmental and Non-Governmental Experts on the Missing and their Families (2003).10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.11 http://www.icrc.org/Web/eng/siteeng0.nsf/htmlall/statutes-movement-220506/$File/Statutes-EN-A5.pdf12 http://www.icrc.org/web/eng/siteeng0.nsf/html/57JMDK. The 25th International Conference of the Red Cross, National Societies took place in Geneva from 23-31 October, 1986.

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Work of the Irish Red Cross RFl unitThe RFL Unit has three principal activities:

1. Tracing Service

The Tracing Service brings together close relatives who have been separated by armed conflicts, political upheaval, or natural disasters such as earthquakes or serious flooding which have forced people to leave their homes. The Irish Red Cross works, through this service, to help people in Ireland and overseas re-establish family connections.

2. Messaging Service

The Messaging Service is used in circumstances of war or natural disasters where family members have lost contact or people have been taken prisoner or moved to refugee camps and shelters. If normal means of communication have broken down, the Red Cross Messaging Service is often the only means for families to keep in touch.

3. Family Reunification Travel Assistance Service

The Family Reunification Travel Assistance Service supports applicants for family reunification in Ireland (people with refugee status, on low income, whose families have been granted visas to travel to Ireland) by interviewing applicants, liaising with the United Nations High Commissioner for Refugees (UNHCR) and the International Organisation for Migration (IOM) and putting into place all the arrangements which will allow the applicant’s family to travel to Ireland.

RFL has become more significant in the Irish context over the last decade (Figure 1) because of the increased number of refugees. While the numbers have slowed in recent years, nevertheless, the permanent establishment of immigrant/refugee families in Ireland will inevitably lead to the continuing arrival of relatives and with that, separation from family elsewhere. While there is no direct causal relationship between immigration and the demand for RFL services, nevertheless it is probable that continuing immigration will lead to a continuing demand for the Family Reunification Travel Assistance Programme and the Family Reunification Support Programme.

Fig 1: Number of Refugee Applications 1992 – 2009

Source: (Office of the Refugee Applications Commissioner Annual Report 2009)

Despite the reduced numbers of refugee applications, the level of RFL activity has remained fairly constant (Figure 2), with a notable increase in travel assistance – a programme that only commenced in 2007.

Fig 2: RFL Activity Source: (IRC statistics)

The 11% increase overall in RFL activity in Irish Red Cross between 2005 and 2009 and, more significantly, the 16% increase since 2007 has been achieved without any increase in staffing, despite the fact that travel assistance has trebled in the last three years. While messaging, which is the least time-consuming part of RFL, has decreased by 46%, the very time-consuming tracing work has increased by 74%.


Where money comes fromThe graphs illustrate income by source. The first includes $446 million government funding to operate the Australian Red Cross Blood Service. The second shows income solely for the non-blood humanitarian work of Australian Red Cross in Australia and overseas.‘Community support’ is money received from the Australian public: from humanitarian regular givers, public donations, third-party community fundraising, corporate supporters, bequests and events. ‘Bushfire Appeal’ is all public, corporate and government donations received supporting the Victorian Bushfire Appeal 2009, set up in partnership with the Victorian and Federal governments on 8 February, 2009. ‘Government grants’ include local, state and federal government funds including considerable AusAID support for international programs. ‘Investment income’ includes dividends, interest and rental income from investment properties. ‘Sale of goods’ represents income from retail shops, first aid and the sale of merchandise. ‘Other income’ includes membership income and profit on disposal of assets.

Where the money goes91% of money goes to directly support vulnerable people in Australia and overseas.This includes 36% to the 2009 Victorian Bushfire Appeal Fund Trust Account, from which funds are allocated by the Victorian Bushfire Appeal Fund Panel and distributed by the Victorian Department of Human Services to individuals and communities affected by the 2009 Victorian bushfires.

Other costs include retail stores, merchandise catalogues and first-aid activities that generate income for programs (3%), administration of programs and income generating activities (3%) and the cost of supporting fundraising (2%).

Financialsnapshot

1%1% 4%4%

36%

54%

1%1% 7%8%

66%

17%

3%2% 1%

3%

55%36%

20%

2%

5%

1%1% 4%4%

36%

%

1%1% 7%8%

66%

17%

3%2% 1%

3%

55%36%

20%

73%

2%

5%

8%

18%

74%

2009

2009

54

19921993199419951996

19981999

1997

2000200120022003200420052006200720082009

3991362424

11793883

46267724

1093810325

116347900

4766432343143985

38662689

200520062007200820092010

100% (104)97% (98)

97% (70)87% (88)

71% (87)52% (49)

2005

2006

2007

2008

2009127 45 18

104 38 16

73 84 6

111 53 0

0102 69

200520062007200820092010

0% (0)3% (3)

3% (2)13% (13)

29% (35)48% (45)

48% (45)29% (35)

13% (13)3% (2) 0% (0)

3% (3)

2005 2006 2007 2008 2009 2010

48% (45)29% (35)

13% (13)3% (2) 0% (0)

3% (3)

2005 2006 2007 2008 2009 2010

Tracing Messaging Travel assistance




Financialsnapshot1%1% 4%4%

36%

54%

1%1% 7%8%

66%

17%

3%2% 1%

3%

55%36%

20

2%

5%

1%1% 4%4%

36%

%

1%1% 7%8%

66%

17%

3%2% 1%

3%

55%36%

20%

73%

2%

5%

8%

18%

74%

2009

2009

54

1992199419961998200020022004200620082009

1200010000

8000

8000

6000

60006000

2000

2000

0

2005

2006

2007

2008

2009127 45 18

104 38 16

73 84 6

111 53 0

0102 69

NOTE: Actual number of requests are shown in brackets.

10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.

97%

(98)

2005

3% (3

)

97%

(70)

2007

3% (2

)

100%

(104

)20

060%

(0)

87%

(88)

2008

13%

(13)

71%

(87)

2009

29%

(35)

2010

48%

(45)

52%

(49)

10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.

48% (45)29% (35)

13% (13)3% (2) 0% (0)

3% (3)

2005 2006 2007 2008 2009 2010

48% (45)29% (35)

13% (13)3% (2) 0% (0)

3% (3)

2005 2006 2007 2008 2009 2010


FromIreland

FromAbroad

The following table demonstrates that 50% of tracing activity is generated by requests originating in Ireland:

Irish Red Cross outreach services would clearly only apply to such requests, and further analysis may be required to determine whether specific services should be provided for particular communities.

It is important that the RFL service should continue to be in a state of preparedness for increased demands caused by unforeseen conflict and natural disaster, as well as to deal with the following services which may be required in the future:

› Detention visits, offering prisoners the chance to use RFL services;

› Obtaining and forwarding personal documents for those who have no (access to) documents as a result of armed conflict or disaster. This is a service offered by most National Societies;

› RFL assistance at home during times of natural disasters (e.g. flooding).

Purpose and Structure of the RFl Strategy

The Restoring Family Links Strategy will guide the work of the Unit for the next five years.

This strategy seeks to ensure that the IRC plays its proper role effectively in restoring family links as a member of the Red Cross/Red Crescent Movement.

The specific aims of the RFL strategy are to:

› Define the IRC’s ambitions in respect of RFL;

› Provide a coherent strategic direction for the IRC’s RFL activities;

› Develop a programme of activities to deliver the strategy;

› Define the resources required for the programme of activities and agree organisational commitment with the Governing Board;

› Identify and continue to develop the competencies required to match the strategic direction;

› Establish milestones against which this strategy can be evaluated in 2013 and 2015

› Develop a marketing and communication plan to ensure understanding and buy-in of the RFL strategy by our stakeholders;

› Develop a publicity campaign to raise awareness amongst those who may require the service;

› Ensure that the RFL strategy is fully integrated with the IRC’s other strategies and with the relevant strategies of the Red Cross/Red Crescent Movement.

20




Financialsnapshot1%1% 4%4%

36%

54%

1%1% 7%8%

66%

17%

3%2% 1%

3%

55%36%

20

2%

5%

1%1% 4%4%

36%

%

1%1% 7%8%

66%

17%

3%2% 1%

3%

55%36%

20%

73%

2%

5%

8%

18%

74%

2009

2009

54

1992199419961998200020022004200620082009

1200010000

8000

8000

6000

60006000

2000

2000

0

2005

2006

2007

2008

2009127 45 18

104 38 16

73 84 6

111 53 0

0102 69

NOTE: Actual number of requests are shown in brackets.

10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.

97%

(98)

2005

3% (3

)

97%

(70)

2007

3% (2

)

100%

(104

)20

060%

(0)

87%

(88)

2008

13%

(13)

71%

(87)

2009

29%

(35)

2010

48%

(45)

52%

(49)

10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network”.

48% (45)29% (35)

13% (13)3% (2) 0% (0)

3% (3)

2005 2006 2007 2008 2009 2010

48% (45)29% (35)

13% (13)3% (2) 0% (0)

3% (3)

2005 2006 2007 2008 2009 2010


FromIreland

FromAbroad

Fig 4: Source: (IRC statistics)

21

The RFl VisionThe IRC’s vision is to provide an RFL service which will reflect best practice.

The IRC seeks to serve the needs of those who have been separated from family with efficiency, compassion and understanding of their individual needs.

The IRC will play its part as partners in the RFL activities of the Red Cross/Red Crescent Movement, both cooperating with other National Societies and supporting the Movement in the development and implementation of RFL policies.

The IRC will also work with the statutory authorities and other bodies in Ireland to provide support to those who have sought assistance from the IRC’s RFL services.

ChallengesThe main challenges facing the successful implementation of the RFL strategy – which can also be seen as opportunities - include:

› To always be sensitive to, and continuously develop our understanding of, the actual and potential nature of, and demand for, RFL services;

› Ensuring that the resources are available to meet the needs and demands for RFL, particularly in a time of significant resource constraints;

› Achieving “buy-in” from our volunteers that this aspect of the IRC’s activities is an important part of the IRC’s mission;

› Engaging the IRC volunteers in supporting RFL clients around the country;

› Engaging effectively with the statutory authorities in supporting the RFL clients;

› Collaborating effectively with non-statutory, voluntary organisations which have similar or complementary objectives;

› Playing an appropriate role as a RFL partner in the Red Cross/Red Crescent Movement.

Strategic ApproachThe following approaches will guide the way that the strategy is planned, implemented and resourced over the next five years:

Focus: Activities will be focussed on family reunification and on tracing, since messaging is declining in importance given the prevalence of mobile phones, and we will develop distinct programmes for each field.

Follow up: In response to the findings from the survey of families supported by the Travel Assistance programme, families who have been reunified through the IRC will be supported and mentored until they are sufficiently well-established in Ireland to access and use whichever state services they are entitled to and require.

Regionalisation and the involvement of volunteers: An analysis of tracing requests demonstrates that approximately 60% of those requiring RFL assistance live outside the Dublin area. Support will therefore be provided both to reunified families and to those requesting tracing services by providing services as close to their homes as possible rather than only at IRC headquarters in Dublin. This will require the commitment and involvement of volunteers, who will have to receive specific RFL training.

Best practice: RFL services provided by the IRC will meet best international standards. In order to achieve this, there will be close collaboration with other National Societies that are considered to be examples of best RFL practice, and with the ICRC and the IFRC. The IRC will also seek to provide best practice leadership, particularly in relation to the follow-up of reunified families.

Partnership: In additional to the collaboration with the ICRC and other National Societies, partnerships will be developed with other organisations, particularly in Ireland, which provide related services. Such partnerships should be aimed both at capacity-building and ensuring the most effective use of resources.

Humanitarian diplomacy: In its role as Auxiliary to the national authorities in humanitarian affairs, the IRC will seek to inform State policy and practice on matters related to RFL.

Financing RFL activities:Financing of the RFL Strategy will be undertaken within the context of the broader organisational fundraising strategy.


“I ran as fast as I could to my house and when I got inside my husband was gone and there were three soldiers there.”


23

mary’s Story It was a summer’s morning and I was at home with my husband in our village. We had been married for just over one year. I had an appointment to see the doctor as I had become pregnant but I did not tell my husband until I was sure. My doctor confirmed the pregnancy and I was happy and could not wait to share the news with my husband. As I was returning to my village I saw that there was some trouble. I ran as fast as I could to my house and when I got inside my husband was gone and there were three soldiers there. I asked them where my husband was and they did not answer. Instead they raped me and there was nothing I could do to help myself. I left my house crying and broken and I met a kind person who helped me.

I left my country and came to Ireland but I could not forget. I live here with my baby and wonder where my husband is and if he is safe. He has never seen his son. I was told to come to the Red Cross to search for my husband.

The lady talked to me and helped me to fill in the forms. After a few months the Red Cross lady asked me to come and see her. She told me that she could not find my husband. I was so upset that I cried and could not stop. She asked me to try and write to a friend, neighbour or other relative. I wrote to my husband’s best friend.

After a long time the lady from the Red Cross sent me a letter she had received from my husband’s friend. He told me that my husband was alive but that he was in hiding for his safety. I wrote back telling him that he had a beautiful son and that I hope one day we will be all together.

TRACInG

ICRC ACTION 1:

Develop capacity for assessing RFL needs and planning operational response

RFL needs and the capacity to meet them must be systematically and meticulously assessed. The Movement must regularly review and adapt its services to account for needs, capacities, resources and the operational context.

Implementation

The National Societies will:

1.1.1 Undertake, in consultation with the affected individuals, populations and other concerned parties, comprehensive RFL assessments incorporating:

› existing and potential populations in need of RFL assistance (RFL core activities and interconnected activities);

› the capacity of the National Society or the ICRC to respond;

› the role and activities of authorities and other organisations in this field.

IRC Strategic Actions

The IRC has carried out a needs assessment based on a survey of family reunification between 2007 and 2009, and a desk-based analysis of tracing requests (2005-2009) has also been completed. This strategy is intended to address the needs identified in these surveys and, in particular, to develop the capacity of the IRC to respond to the identified needs.

1. In 2011-2012, an analysis of the role and activities of authorities and other organisations in the field will be carried out in order to determine how the IRC might best collaborate with them

1.1.2 Develop operational plans to meet the needs of affected populations and respond to enquiries from within the Family Links Network. Plans should include systematic consultations with beneficiaries and review of RFL action, and consider, where necessary, combining RFL activities with other programmes (e.g. health, social-welfare, disaster preparedness and response, first aid).

IRC comment:

This IRC strategy is intended to provide the basis for the development of operational plans for our RFL services drawn up in 2011.

24

ICRC STRATEGIC OBjECTIVE 1:

Improving restoring family links capacity and performance

RFl Strategic Actions

The IRC’s strategic actions have been developed to meet requirements in an Irish context within the framework provided by the ICRC’s RFL Strategy. Relevant actions from the ICRC RFL strategy are below and are followed by the IRC strategic actions, shown in boxes, or comment where appropriate.

25

ICRC ACTION 2:

Enhance RFL response through training and information exchange

To improve performance and build professional practices, it is important to develop the knowledge and skills required for RFL. Greater awareness of the connections between RFL and other Movement programmes leads to better service.

Investing in professional development for staff and volunteers will have a direct, positive impact on performance and enhance the Movement’s credibility.

ImplementationThe National Societies will:

1.2.1 Devise and run training programmes for professional staff and volunteers covering RFL response to national needs and to requests from the Family Links Network. RFL will be incorporated into training programmes for volunteers wherever possible.

1.2.2 Develop RFL programmes to supervise and support RFL practitioners at headquarters and in the branches.

1.2.3 Carry out staff exchanges, programme visits or internships involving other National Societies, convey useful practices and build an understanding of RFL across a variety of contexts.

IRC Strategic Action:

2. In 2012, a training programme will be established, particularly for volunteers, to enable regional RFL centres to be established. These regional RFL centres will bring RFL services closer to clients, and will also provide the focal points for the Family Reunification Support Programme. These training programmes will be run in collaboration with other National Societies as part of closer collaboration on RFL activities.

ICRC ACTION 3:

Develop and utilise comprehensive guidelines and tools for building RFL capacity

Restoring family links across a range of diverse situations of humanitarian concern requires common guidelines and tools for building coherent methods, practices and understanding across the Network. To measure performance and ensure that services are of high quality and truly benefit those in need, performance indicators, monitoring and evaluation tools must be used.


1.3.1 Regularly collect, by 2013, data on RFL using the Family Links Network data collection tool and analyse that data to ensure high-quality service and optimum use of resources.

1.3.2 Establish, by 2013, processes for the monitoring and evaluation of RFL activities, using the Family Links Network performance management tools.

1.3.3 Develop, by 2013, RFL guidelines and tools adapted to the context and culture, in accordance with the Restoring Family Links Manual for the Movement and the Family Links Network performance management tools.

1.3.4 Disseminate, by 2014, RFL guidelines and tools throughout their headquarters and branches.


3. In 2013-14, the IRC will be using the Family Links Network data collection tool and the performance management tools to collect data on RFL and to monitor and evaluate RFL activities.


26

ICRC ACTION 4:

Build the capacity to assess, adapt and incorporate technology for greater programme efficiency

The Movement’s components use methods and technologies adapted to the context. To ensure that the Network is responsive and effective, they use electronic data transmission, mobile computers, database systems, the Internet, and new technologies. Modern technologies are assessed and integrated to provide increasingly professional, targeted and innovative services, and thus improved response.

All RFL activities must ensure the protection of individual data and of any other sensitive information, at all times. The confidentiality of personal and other sensitive data is paramount and the principles for their protection must be respected by all.


1.4.1 Ensure that their tracing services have access to the Internet and other technologies that help improve performance.

1.4.2 Share with the ICRC applications or technologies developed for RFL.

1.4.3 Contribute, by 2012 and in cooperation with the ICRC, to the appraisal and development of new RFL methods and technologies.

1.4.4 Approach the CTA to use the ICRC’s Family Links website for RFL response in major natural or manmade disasters.


4. From 2011, IRC will collaborate with ICRC on the development, application, and appraisal of new RFL methods and technologies.

ICRC ACTION 5:

Increase resource mobilisation and support for RFL activities

In order to support the development and delivery of RFL activities, the Movement’s components must better utilise the resources they have and increase the resources at their disposal. All the components can boost their ability to raise funds. In addition to financial resources, the Movement will better identify the skills, capacities and contributions that the various components need to share. In this way, resources can be better utilised across the Network.


1.5.1 Ensure cooperation between fundraising, communication and tracing services and develop plans of action to raise funds for RFL that are part of the overall fundraising policy.

1.5.2 Share with each other information and best practices regarding fundraising.

1.5.3 Allocate core funds to develop and maintain RFL, and assess diversified funding sources.

1.5.4 Incorporate RFL in their regular fundraising appeals.

1.5.5 Participate, in 2008, 2011, 2014 and 2017, in the RFL contributions assessment that will identify the skills, capacities, time and resources that can be shared across the Network.


5. In 2011, the IRC will develop a plan of action to raise funds for RFL activities.

6. In 2014, the IRC will participate in the RFL contributions assessment.


Enhancing coordination and intra-Movement cooperation

27

ICRC ACTION 1:

Improve the Movement’s rapid-response capacity for emergencies

Increasingly major and complex emergencies, combined with varying capacities for RFL response within the Movement, require better coordinated and faster response. Reducing the time taken to assess needs and deliver RFL activities is essential for effectiveness. Taking into account that RFL operational activities are coordinated by:

› The ICRC in conflicts and other situations of violence or in disasters requiring an international response,

› Individual National Societies during national disasters, and

› The ICRC at the request of the National Society where the RFL response is beyond the latter’s capacity during national disasters, greater emphasis must be placed on a rapid and

› Coordinated response, making better use of Movement resources and experienced RFL specialists.


7. In 2013, the IRC will explore the possibility of providing a trained RFL specialist for rapid deployment.


Implementation MeasuresThe National Societies will:

2.1.1 Incorporate RFL action in emergency-preparedness and response plans in accordance with ICRC guidelines for RFL response in natural or manmade disasters, and ensure appropriate training for all first responders.

2.1.2 In national disasters, call on the ICRC without delay for support where the need for RFL outstrips their capacity.

2.1.3 In accordance with the Framework for the Deployment of International RFL Specialists during Disasters, provide the ICRC/CTA with trained RFL specialists for rapid deployment. Such specialists for rapid deployment will be taken from a predefined pool only with the agreement of each National Society.

2.1.4 Assess, by 2011, the need for, and feasibility of, establishing National Society sub-regional focal points for RFL response in natural or man-made disasters. If deemed useful, establish such RFL focal points.

ICRC ACTION 2:

Strengthen coordination within the Family Links Network

Harmonising the Movement’s work to provide an internationally consistent response over the short, medium and long terms requires participation by all components. This should not be a static exercise – coordination requires increased interaction, the exchange of information, the identification of issues and the building and retention of RFL knowledge. Employing a specific regional focus, enhance services and make better use of existing knowledge and skills within the Family Links Network.


2.2.1 Contribute to greater regional coordination in RFL by prioritising this subject in regional forums, strengthening the exchange of information and best practices with other National Societies and the ICRC/CTA, and building stronger links with other National Societies in their respective regions.

2.2.2 Seek to harmonise criteria for the acceptance of RFL cases, ensuring that they take into account regional particularities.

IRC Strategic Actions:

8. In 2011, the IRC will establish a close working relationship with a relevant National Society in relation to the implementation of the IRC RFL strategy.

9. From 2011, the IRC will begin to take part, on a regular basis, in the ICRC annual RFL meeting and meetings of PERCO (Platform for European Red Cross Cooperation on Refugees, Asylum Seekers and Migrants).

ICRC ACTION 3:

Strengthen Movement cooperation through the increased flow of resources and knowledge between National Societies

High-quality RFL in both emergency situations and stable environments means involving different components of the Family Links Network at different times. The Network’s resources are better utilised and cooperation strengthened if the National Societies play a greater role in RFL capacity building (within an agreed framework).


2.3.1 Contribute, by 2009 and in coordination with the ICRC, to a framework for partnerships addressing the international involvement of National Societies in programmes to build the capacity of tracing services.

2.3.2 Use, commencing in 2010 and for all international RFL, the ICRC’s capacity-building framework for RFL together with National Societies.

2.3.3 Contribute, by 2011 and in cooperation with the ICRC, to the development of training modules for RFL capacity building.

2.3.4 Increase the availability and training of, and support for, experienced RFL staff to create a pool of capacity-building experts for international work.

2.3.5 Regularly engage in bilateral contacts with the tracing services of other National Societies, to improve RFL results and better share information.


10. From 2011, the IRC will adopt the ICRC’s capacity-building framework.

11. From 2011, the IRC will contribute to the development of training modules for RFL capacity building.

12. In 2013, the IRC will explore the training and provision of experienced RFL staff for international work.

13. From 2011, the IRC will strengthen engagement in bilateral contacts with tracing services of other National Societies.

28

29

ICRC ACTION 4:

Increase interaction with the authorities and with other organisations

Successful implementation requires a better integrated, more compatible and better coordinated approach when dealing with the various interested parties outside theMovement. To avoid duplication of effort and achieve better results, there must be greater understanding of the role and activities of non-Movement parties concerned with RFL, the development of common principles for RFL and improved consistency in selecting target populations, identifying areas of expertise and determining which activities are needed.


2.4.1 Regularly both remind State authorities of their responsibilities towards affected individuals and populations requiring RFL assistance and seek their increased support for that work.

2.4.2 Ensure that they comply with national laws on the protection of personal data.

2.4.3 Develop a close relationship with governmental services in order to avoid delays in response. Consider memorandums of understanding with governmental bodies.

2.4.4 Establish and strengthen relationships with the authorities and other organisations providing similar or related services at the local and national levels.

2.4.5 Review national legislation to ensure that family links issues are included in national disaster-preparedness and response plans, and engage with State authorities for their inclusion where necessary. This should include ensuring that such plans set out the role of the National Society in restoring family links.


14. In 2011-12, the IRC will conduct a detailed review of its relationship with state authorities and will then develop policies with regard to its relationships with these bodies.

15. In 2011-12, the IRC will conduct a similar review of other organisations providing related RFL services in order to ensure better use of resources.

16. In 2013, a review of national legislation will be carried out.


ICRC ACTION 1:

Build a strong organisational foundation for RFL activities in all situations and contexts

The Movement’s ambition is to lay a solid foundation for RFL. Much remains to be done for its components to shoulder their responsibility in this field. The process of revising both National Society statutes and the policy frameworks of the various components to reflect RFL signals a commitment to improving RFL activities and working toward a consistent response to needs. So too does the effort to improve service development and management.


3.1.1 Define their precise RFL roles and functions in the different situations that may arise, taking into account the Movement’s resolutions.

3.1.2 Revise their Statutes, in accordance with the International Federation’s Guidance for National Society Statutes, to reflect their RFL roles and responsibilities as defined in the Movement’s Statutes and resolutions.

3.1.3 Create or revise national strategic and development plans to include national and international RFL activities.

3.1.4 Establish operational links between tracing services, disaster-preparedness and disaster response programmes, volunteer management and other relevant units such as dissemination and information.

3.1.5 Develop an internal system to support RFL, including management, service development and involvement of volunteers.

IRC Comment:This strategy provides the basis for building a strong organisational foundation for RFL activities amongst management, staff and volunteers

ICRC ACTION 2:

Enhance Movement support for and understanding of RFL activities through internal promotion

Making RFL responsibilities and action better known among the Movement’s components will increase both understanding and support. Since RFL needs are inadequately communicated within the Network, continuous effort is required to raise awareness and pool information. This will lead to National Society leaders feeling a greater sense of direct responsibility for RFL activities and to volunteers and staff better identifying needs, and to a more integrated response.


3.2.1 Keep governing bodies, volunteers and staff informed about the RFL roles of the National Society and the Family Links Network.

3.2.2 Incorporate RFL news in meetings and other means of disseminating information within the organisation.

3.2.3 Strengthen relationships between communication departments and tracing services and draw up plans of action for publicly promoting this work.

3.2.4 Regularly communicate to governing bodies, staff and volunteers the outcomes and commitments regarding RFL of the Movement’s statutory meetings.


17. In 2011, an information programme will be developed, for staff and volunteers, to ensure that the IRC’s RFL activities are effectively connected to the other activities of the Irish Red Cross. This strategy document will form a key part of this process.

30


Strengthening support for restoring family links

31

ICRC ACTION 3:

Increase communication with key external stakeholders, to position the Family Links Network as the leader in this field

To be more effective in RFL, the Movement’s components must disseminate information and raise public awareness of the needs of people separated from their families. The Movement must promote a strong and consistent image of this unique and very human service, raising its profile and ensuring that the general public, governments, donors and others all view the Movement’s RFL activities as a vital humanitarian service.

ImplementationThe National Societies and the ICRC will:

3.3.1 Draw up and share with the Family Links Network, by 2009, a worldwide communications plan to support implementation of the RFL strategy. This plan will include:

› key messages on RFL activities adapted to the various target groups and contexts;

› communication tools to explain and promote RFL activities, the role of the Network and the plight of people left without news of loved ones;

› an increased focus on RFL in the various promotional activities;

› devising a visual identity for the Family Links Network;

› exploring the concept of “goodwill ambassadors” to raise awareness of the impact of family separation and to promote RFL activities;

› identifying promotional opportunities;› engaging media representatives in raising

awareness of RFL needs and promoting RFL itself.

3.3.2 Undertake regular meetings with affected individuals and populations to promote RFL and the Family Links Network.

3.3.3 Give regular information on RFL to donors, the authorities and other organisations.

The National Societies will:

3.3.4 Devise, by 2013, a communication plan to support RFL. National Society communication plans can be further strengthened on the basis of the worldwide communication plan.


18. In 2011, a communications initiative will be launched to publicise the IRC’s RFL activities amongst the public at large, donors, and other stakeholders.


Summary of RFl Strategic Actions: milestonesThis IRC strategy is intended to provide the basis for the operational plans and will provide the basis for building a strong organisational foundation for RFL activities.

These strategic actions have been listed in chronological order, with their original numbering (see previous section) in parenthesis.

1. From 2011, the IRC will strengthen engagement in bilateral contacts with tracing services of other National Societies. (13)

2. In 2011, the IRC will establish a close working relationship with a relevant National Society in relation to the implementation of the IRC RFL strategy. (8)

3. In 2011, an information programme will be developed, for staff and volunteers, to ensure that the IRC’s RFL activities are effectively connected to the other activities of the Irish Red Cross. This strategy document will form a key part of this process. (17)

4. In 2011, a communications initiative will be launched to publicise the IRC’s RFL activities amongst the public at large, donors, and other stakeholders. (18)

5. From 2011, the IRC will begin to take part, on a regular basis, in the ICRC annual RFL and meetings of PERCO (Platform for European Red Cross Cooperation on Refugees, Asylum Seekers and Migrants). (9)

6. In 2011-12, the IRC will conduct a detailed review of its relationship with State authorities and will then develop policies with regard to its relationships with these bodies. (14)

7. In 2011-12, the IRC will conduct a review of other organisations providing related RFL services in order to ensure better use of resources. (15)

8. From 2012, IRC will collaborate with ICRC on the development, application, and appraisal of new RFL methods and technologies. (4)

9. In 2012, the IRC will develop a plan of action to raise funds for RFL activities. (5)

10. From 2012, the IRC will adopt the ICRC’s capacity-building framework. (10)

11. From 2012, the IRC will contribute to the development of training modules for RFL capacity building. (11)

12. In 2012, a training programme will be established, particularly for volunteers, to enable regional RFL centres to be established. These regional RFL centres will bring RFL services closer to clients, and will also provide the focal points for the Family Reunification Support Programme. These training programmes will be run in collaboration with other National Societies as part of closer collaboration on RFL activities. (2)

13. In 2012-2013, an analysis of the role and activities of Irish authorities and other organisations in the field will be carried out in order to determine how the IRC might best collaborate with them. (1)

14. In 2013, the IRC will explore the possibility of providing a trained RFL specialist internationally including for rapid deployment. (7 and 12)

15. In 2013, a review of national legislation will be carried out. (16)

16. In 2013-14, the IRC will be using the Family Links Network data collection tool and the performance management tools to collect data on RFL and to monitor and evaluate RFL activities. (3)

17. In 2014, the IRC will participate in the RFL contributions assessment. (6)

ImplementationThe strategy outlined herein implies a substantial increase in the level and complexity of activity of the RFL Unit. As described, there has been an almost 75% increase in tracing requests between 2007 and 2009, and the number of family reunifications has tripled. The implementation plan will have to consider how to resource this increase in activity to support the single person in the RFL Unit.

Three approaches may be required:

› Additional (voluntary) assistance will have to be provided to work on RFL activities at HQ, and

› Volunteers will provide RFL services at Regional Centres (see map next page).

› As indicated in the section on “Summary of RFL Strategic Actions: Milestones” (see point no. 9).

32

33

Fig 5: Breakdown of Demand for Irish Red Cross RFl Services 2005-2009


Galway

Demand for Irish Red Cross RFL services by county2005-2009

COUNTY NO. NO. NO.COUNTY COUNTY

Laois 2

Kildare 1Donegal 4Waterford 12

Galway 19

Limerick 22

Meath 26

Kerry 29

Cork 61

Dublin 208

Kilkenny 5

Sligo 6

Mayo 7

Carlow 7

Clare 9

Longford 11

Louth 2

Monaghan 2

Wicklow 2

Wexford 3

Tipperary 4

Meath

Limerick

Dublin

Laois

Louth

Longford

Sligo

Donegal

KilkennyTipperary

Kildare

Clare

Mayo

Waterford

Carlow

Wicklow

Wexford

CorkKerry

Monaghan

Country Total: 442

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monitoringand evaluation of Implementationof the StrategyResponsibility for implementing the Irish Red Cross’s RFL Strategy rests primarily with the Irish Red Cross.

The “Summary of RFL Strategic Actions: Milestones” provides the key performance indicators against which this strategy should be monitored and evaluated in 2013 and 2015.

An Annual Report on progress shall be presented to the Executive Committee of the Irish Red Cross.

ConclusionThis strategy has highlighted the important role that RFL plays in reuniting those separated in a wide range of circumstances, as well as the part played by the RFL Unit in collaborating with other National Societies to trace missing relatives.

It has set out a vision for the future, together with the strategic actions required to achieve that vision.

This strategy has been approved by the Executive Committee and will form the basis for an implementation programme which will be monitored on an annual basis by that Executive.

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Appendix 1:

The Legal Basis and Role of the Movement’s Components in Restoring Family Links

Content:

1.1 Legal basis

1.1.1 The Geneva Conventions and their Additional Protocols

1.1.2 Statutes of the International Red Cross and Red Crescent Movement

1.1.3 Resolutions of the International Conference of the Red Cross and Red Crescent

1.2 The role of the Movement’s components in restoring family links

1.2.1 The role of the ICRC 1.2.2 The role of National Societies 1.2.3 The role of the Secretariat of the

International Federation

1.1 Legal basis

1.1.1 The Geneva Conventions and their Additional Protocols

The four Geneva Conventions of 1949 (GC) and the First Additional Protocol of 1977 (AP I) address the protection of persons affected by international armed conflict. Chiefly concerned are wounded or sick members of armed forces in the field or at sea, members of military medical services and prisoners of war. Also protected are civilians – for example, foreign nationals (including refugees) on the territory of the parties to a conflict, populations in occupied territory, civilian detainees and internees and health and religious workers belonging to civilian aid organisations.

The Second Additional Protocol (AP II) of 1977 and Article 3 common to all four Geneva Conventions concern the protection in situations of non-international armed conflict of persons who are not, or are no longer, taking part in hostilities. Common Article 3 comprises a minimum set of rules which the conflicting parties are bound to apply at all times. On the whole, the rules are often less precise than those applicable in international armed conflict.

In other situations of violence – which this guide will refer to as “internal disturbances” – the provisions of the Conventions can only be applied by analogy. However, States must respect a certain number of universal humanitarian principles and the human rights instruments to which they are party.

With regard to the restoration of family links, the Geneva Conventions define the roles of:

› National Information Bureaux (NIBs): GC III, art. 122 and GC IV, art. 136 (see Annex 1: National Information Bureaux (NIBs).

› the Central Information Agency and the ICRC: GC III, art. 123 and GC IV, art. 140 - in 1961, the Central Information Agency (also known as the Central Prisoners of War Information Agency), became the Central Tracing Agency (CTA).

The activities governed by the Geneva Conventions and their Additional Protocols can be grouped under four headings:

Collecting, recording and forwarding information for the purpose of identifying prisoners of war or civilian internees, the wounded, sick or dead and others afforded protection. In an international armed conflict, this information is obtained by NIBs, which must then forward it to the opposing side through the intermediary of the Central Information Agency/ CTA or the Protecting Powers (GC III, art.122-125). Generally speaking, the information concerned is provided by capture or internment cards, certificates detailing the medical condition of protected persons who are sick or wounded, and records of protected persons’ movements (transfer, release, repatriation, escape, hospitalisation, birth and/or death). Article 138 of the Fourth Geneva Convention both lists the kind of information to be received and transmitted by NIBs and describes its purpose, which is to make it possible to identify protected persons without error and swiftly to advise their next of kin. (For an exhaustive list of relevant articles in the Geneva Conventions and its Additional Protocols, see Annex 2: List of articles in the four Geneva Conventions of 1949 and their Additional Protocols of 1977 concerning or relating to the activities of the National Information Bureau (NIB) and/or the ICRC Central Tracing Agency (CTA).

Forwarding family news; regarding in particular the right of prisoners of war and internees to send and receive letters and cards (GC III, art.71 and GC IV, art.107), and that of individuals to receive news from relatives (GC IV, art.25). The Conventions describe what form correspondence may take, how its content is to be checked


and in which circumstances it is exempt from postal charges. They also define Parties’ obligations with regard to the forwarding of personal effects.

Tracing missing persons; regarding in particular the right of families to know their relatives’ fate (AP I, art.32-34) and Parties’ obligation to provide all necessary particulars for the identification of protected persons when deceased and details on the whereabouts of their graves (GC III, art.120 and GC IV, art.130).

Family reunification; in particular, measures for the evacuation of children (AP I, art.78), the reunion of dispersed families (GC IV, art.26 and AP I, art.74) and the transfer or repatriation of prisoners or other protected persons (GC III, art.119; GC IV, art.128, 134 and 135).

1.1.2 Statutes of the International Red Cross and Red Crescent Movement

The general roles of the National Societies, the ICRC and the International Federation are defined in Articles 3, 5 and 6 respectively of the Statutes of the International Red Cross and Red Crescent Movement. The Statutes recognise the ICRC’s right of initiative, whereby it can offer its services in situations which are not covered by international humanitarian law (IHL), such as internal disturbances (Articles 5.2d and 5.3).

1.1.3 Resolutions of the International Conference of the Red Cross and Red Crescent

Every four years, the components of the Movement and the States Parties to the Geneva Conventions hold an International Conference which culminates in joint resolutions on protecting and assisting people affected by situations of armed conflict, internal disturbances or natural disaster. These resolutions are formulated as requests or recommendations for action by States and/or components of the Movement.

Certain resolutions relate more specifically to persons who are reported missing or have died during armed conflict, dispersed families, internally displaced persons (IDPs) and refugees. Such resolutions are concerned with preserving the family unit through the tracing and reunification of family members and the transmission of personal details necessary for these two tasks. They tackle the question of protecting unaccompanied children and minors in difficulties and consider what measures are necessary to reunite them with their families. Lastly, they call on governments to prevent forced or involuntary disappearances and stress the need to ascertain the fate of missing persons. Resolution XXI of the 24th International Conference

(Manila, 1981) and Resolutions XV and XVI of the 25th International Conference (Geneva, 1986) are of particular interest since they define the role of the Movement in the field of restoring family links and that of the CTA in providing coordination and technical advice. This role was reaffirmed in Resolution 2D of the 26th International Conference (Geneva, 1995) (See Annexes 3.1, 3.2 and 3.3: Resolution XXI of the 24th International Conference (Manila, 1981), Resolutions XV and XVI of the 25th International Conference (Geneva, 1986) and Resolution 2C & 2D of the 26th International Conference (Geneva, 1995)).

1.2 The role of the Movement’s components in restoring family links

The main strength of the Red Cross and Red Crescent Movement, particularly relevant to its task of tracing relatives and restoring family links, is that it consists of a single worldwide network that can apply the same principles and working methods in every country where needs arise – regardless of the legal status of those concerned (prisoners of war, civilian internees, local communities, IDPs, refugees, asylum seekers, etc.). The Agreement on the Organisation of the International Activities of the Components of the International Red Cross and Red Crescent Movement (Seville Agreement, November 1997) re-emphasises the crucial importance of coordinating the efforts of the Movement’s components in order to optimise assistance for victims.

1.2.1 The role of the ICRC

As a neutral and independent institution, the ICRC has the role of endeavouring to provide protection and assistance to military and civilian victims of international and non-international armed conflict and internal disturbances and their direct results. It also oversees the operation of the Central Tracing Agency as set up under the Geneva Conventions and reaffirmed by Article 5 of the Movement’s Statutes.

IHL places great emphasis on maintaining and restoring family links. The ICRC has the important task of reminding authorities of their obligations and carrying out direct action in the field.

As regards the restoration of family links, the ICRC’s role was reaffirmed by the 25th and 26th International Conferences (Geneva, 1986 and 1995), at which the States drew attention to the role of the ICRC and the CTA as coordinator and technical adviser to National Societies and governments.

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As coordinator, the CTA is responsible for deciding what action is to be taken in situations of armed conflict or internal disturbances. The CTA ensures coherence within the network and provides methodology and guidelines to National Societies.

As technical adviser, the CTA establishes sets of working practices for tracing services to adopt. Training seminars and regional meetings are held for the purpose of pooling experience and consolidating shared knowledge.

1.2.2 The role of National Societies

According to the Movement’s Statutes, the National Societies “carry out their humanitarian activities in conformity with their own statutes and national legislation” (Article 3.1). “They organise, in liaison with the public authorities, emergency relief operations and other services to assist the victims of armed conflicts as provided in the Geneva Conventions, and the victims of natural disasters and other emergencies for whom help is needed” (Article 3.2).

As mentioned in Resolution XVI of the 25th International Conference, which recognises the “the International Red Cross and Red Crescent Movement’s responsibility in helping to re-establish or maintain contact between members of families separated as a consequence of armed conflict, tensions or natural disasters”, National Societies are called upon to play an important role as components of the international network for tracing and reuniting families. They have a long term commitment to pursue their action as long as needs exist, a period which may extend well beyond the end of a conflict or natural disaster.

In line with the Movement’s responsibility to preserve the family unit, the National Societies must integrate their activities for restoring family links within an overall plan of action. They must also draw public, humanitarian players and government attention to the work and significance of their tracing services.

An officer responsible for tracing shall be clearly designated in each National Society. This person will be responsible for setting up or consolidating an effective national network for carrying out tracing and family reunification activities. Depending on the circumstances, he/she will work with the CTA, the relevant ICRC delegations and/or the tracing services of other National Societies.

1.2.3 The role of the Secretariat of the International Federation

According to Article 2 of the Statutes of the International Federation, as revised and adopted by the 12th Session of the General Assembly in Geneva (October 1999), “the general object of the Federation is to inspire, encourage, facilitate, and promote at all times all forms of humanitarian activities by the member Societies with a view to preventing and alleviating human suffering and thereby contributing to the maintenance and the promotion of peace in the world”.

The functions of the International Federation are defined in Article 6 of the Movement’s Statutes. It has a particular responsibility to encourage the development of National Societies.

Although neither the Geneva Conventions nor the Statutes specifically mention the part played by the International Federation in restoring family links, the Federation Secretariat will strive to have tracing activities included in National Societies’ development plans. It will also ensure that the role and importance of tracing activities are emphasised and that the respective duties of the authorities and the National Society are clearly defined in plans for disaster preparedness. Finally, in the event of a natural disaster, it will ensure that evaluations of the situation take account of the need for tracing activities and of the degree to which the National Societies of countries affected are able to respond.


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Appendix 2:

Irish Red Cross Pledge on RFL at 30th International Conference of the Red Cross and Red Crescent Societies in 2007.

In 2007 at the 30th International Conference of the Red Cross and Red Crescent Societies in Geneva, the Irish Red Cross signed up to the following pledge:

Pledge P064:

We, National Red Cross Societies of the Member States of the European Union and Norway6, hereby pledge to promote partnerships and increase our cooperation in the area of Restoring Family Links (RFL). To this end we will maximise the use of modern information technologies. Through joint efforts, based on the Movement’s strategy and our position paper Restoring Family Links - roles of the International Red Cross and Red Crescent Movement, we will seek increased recognition of our services at EU and national levels. We will promote RFL services across Europe among refugees, asylum seekers and migrants and, when relevant, other persons affected by disaster or an armed conflict.

notes

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