Since entry into force of the Mine Ban Treaty in 1999, and the adoption of
the UN policy on mine action,[1]
UNICEF has significantly increased its contribution to alleviating suffering
caused by landmines and other explosive remnants of war. Over the past five
years, the number of countries and regions where UNICEF supports mine action in
some form or another has more than tripled from ten countries to 34,
including:[2] Afghanistan,
Albania, Angola, Azerbaijan, Bosnia-Herzegovina, Burundi, Cambodia, Chad,
Colombia, Democratic Republic of Congo, Eritrea, Ethiopia, Georgia, Guatemala,
Guinea-Bissau, Iraq, Indonesia, Lao PDR, Lebanon, Liberia, Mauritania, Nepal,
Nicaragua, Occupied Palestinian Territory, Panamá, Russian Federation
(North Caucasus), Senegal, Somalia, Sri Lanka, Sudan, Syria (Golan Heights),
Thailand, Vietnam, and Zambia.
In addition, public awareness raising about the effects of landmines and
other explosive remnants of war and resource mobilisation initiatives have been
supported by a number of UNICEF National Committees, including: Australia,
Canada, Denmark, Germany, Ireland, Italy, Japan, Netherlands, United Kingdom,
and United States of America.
In 2004, UNICEF’s global financial requirements for mine action
exceeded 29,000,000 US dollars, of which US$11,000,000 had been received by
August. Foremost among UNICEF’s donors include DFID, SIDA, CIDA, UNICEF
National Committees, the European Commission, the governments of Australia,
Italy, Germany, and the United States of America, among others.
Since 1999, UNICEF’s approach to mine action has varied according to
the particular context and scope of the problem being faced in a wide variety of
countries. Some country programmes have incorporated a wide range of activities
including: risk education, support to landmine survivors, advocacy and in some
exceptional circumstances support to mined area marking and small-scale
humanitarian mine clearance. In other smaller programmes UNICEF has continued to
focus on the support to risk education or a particular element of it such as
integrating risk education in school curricula, undertaking mass media campaigns
and advocacy.
Early UNICEF projects were often undertaken in refugee camps and linked with
UNESCO, UNHCR, and NGOs. Such programmes focused on the provision of basic
warning messages, informing communities of the nature of mines and UXO and their
threat and to helping avoid the risk. Media utilised were usually posters, TV
and radio broadcasts, leaflets, and so on. At the time, one of the primary
motivations for UNICEF to undertake MRE stemmed from the need to protect
children in post-conflict situations and the threat mines and UXO posed
especially to safe repatriation. Since that time UNICEF has targeted both adults
and children.
Prior to 1999, UNICEF mine action activities were not directed or coordinated
by any single mine action policy or strategy, but were more often guided by the
need to protect vulnerable children in threatening situations in the framework
of UNICEF’s broader child protection initiatives. The activities of UNICEF
in the field of MRE were, however, formalised in 1998 with the release of the UN
Mine Action Policy, which designated UNICEF as the focal point in the UN system
for risk education, humanitarian advocacy and gave it a strong supporting role
in survivor assistance.[3] Some
of the more important reasons for UNICEF taking on the role of MRE focal point
were due to its added value in supporting education programmes, its existing
presence in all mine affected countries and past experience in implementing MRE,
its resource mobilisation capacity, and its capacity and willingness to work
with a range of governmental and non-governmental partners at a global,
regional, national, and local level.
Following the adoption of the UN mine action policy, UNICEF began to reorient
its activities to serve its newfound role within the UN system. At the time,
UNICEF with partners undertook the development of system-wide minimum standards
for MRE and a series of training manuals for project managers and community
facilitators (International Guidelines for Landmine and UXO Awareness
Education, UN 1999). Additionally, UNICEF placed staff to work with Mine
Action Centres (MAC) in Afghanistan, Ethiopia, Bosnia and Herzegovina, and
Angola, among others, to support national coordination and strategy development
for MRE. Where large-scale mine action programmes exist UNICEF continues to
support the placement of an MRE advisor/coordinator in MACs. In smaller country
programmes or where there is no MAC, UNICEF normally supports the implementation
of MRE projects with its partners. At the international level, UNICEF
co-convenes the MRE Working Group with the ICBL, promotes best practice and
actively participates in actions coordinated by UNMAS, particularly related to
rapid response planning, advocacy, and the development of a range of mine action
policies and strategies.
To further consolidate and broaden its efforts, in 2001 UNICEF developed the
UNICEF Mine Action Strategy 2002-2005. This strategy outlines the role
and activity of UNICEF headquarters, country and regional offices in relation to
mine action. The strategy requires that UNICEF, working with partners, seek to
ensure that mine affected communities are aware of and able to reduce mine
risks, advocate for and with those affected, promote best practice in MRE,
advocate for universal ratification and implementation of the Mine Ban Treaty,
and promote the further development of international humanitarian law in
relation to other indiscriminate weapons and explosive remnants of war.
As a reflection of its broader role in mine action, UNICEF MRE projects have,
in many cases, evolved from fairly straightforward public awareness and
information shows to more integrated community-based education programmes. From
the early to late 1990s, blanket mass media campaigns, which focused on
communication strategies, were often undertaken without any thorough assessment
or analysis of the nature of the mine problem and how it affected communities.
Over the past five years, there have been many advancements in the field of MRE,
and principally these relate to the professionalisation and diversification of
the sector, as well as improvements in terms of the understanding of the nature
and conditions of mine-risk and impact. When analysing the contribution of MRE
to reducing risk, UNICEF has learnt that it is important to measure the rate of
mine casualties in a systematic and ongoing fashion while also measuring the
extent to which MRE has promoted positive behavioural change. In many countries
MRE messages and methods have been adjusted from those which simply teach people
basic mine recognition skills and warning messages with the expectation that
they will avoid mines, to implementing detailed qualitative surveys which
uncover primary factors that contribute to landmine accidents and risk-taking
such as poverty, displacement, and social exclusion. Though there is always room
for improvement, relatively the understanding of behaviour leading to accidents
and the contribution of UNICEF to promoting safer behaviour is far more advanced
and, on a country by country basis, can be more systematically addressed.
An important part of this change was the development and practice of
integrated mine action and the “community liaison approach” (CLA) in
the late 90s, originally and most clearly articulated and practiced by the Mines
Advisory Group. CLA is an effort to integrate impact assessment, with risk
education, and mine clearance (it also sometimes involves support to survivor
assistance programmes by providing referrals and transportation for survivors).
The principle of the approach is that communities should be engaged in
prioritising which of these activities (or combination) should be applied, and
provide training and resources to communities so that they can deal with the
problem in the longer term. CLA often involves a mixture of qualitative and
quantitative assessment techniques, the recruitment and training of community
volunteers and the establishment of reliable communication channels between
affected communities and mine action services, especially demining. What was
(and remains) particularly revolutionary about the approach was that it did not
normally involve delivering standard MRE messages based on assumptions of the
lack of knowledge of communities, but rather attempted to engage communities,
eliciting experiences and solutions to problems from the affected communities.
Generally, and within UNICEF, CLA has come to be seen as best practice in MRE
particularly in long term mined environments. Some limitations to the approach
have been found in emergency settings where populations are on the move and the
mine problem is often fluid. Under such circumstances mass media programmes are
often still considered the most effective to reach the greatest number in the
shortest time. CLA attached with mass media, education and training activities
collectively make up Mine Risk Education.
Such a view of MRE was enshrined in 2003 through the finalisation of the mine
risk education component of the International Mine Action Standards (IMAS) by
UNICEF with the support of Cranfield Mine
Action.[4] The standards include
a new definition of MRE:
educational activities which seek to reduce the risk of injury from
mines/UXO by raising awareness and promoting behavioural change including public
information dissemination, education and training, and community mine action
liaison.
The standards define best practice for undertaking integrated mine action,
MRE assessments, monitoring and evaluation, implementation and continuous data
gathering (surveillance). The standards also enshrine principles related to
gender and other ethical principles, such as engaging affected
communities, preserving privacy, “do no harm” and so on.
While the standards were developed by UNICEF they are applicable to all UN
programmes and programme partners and have been incorporated in the overall IMAS
framework under the management of UNMAS. The expectation is that the
international standards will be translated and national standards developed by
mine action centres and authorities. As of August 2004, the international
standards were being translated into Pashto, Dari, Khmer, Bosnian, Serbian,
Croatian, Portuguese, and Chinese to facilitate communication. And since the
middle of 2003, national standards were being developed with the support of
UNICEF and GICHD in Afghanistan, Bosnia and Herzegovina, Iraq, Sri Lanka, and
Angola. To further support the understanding and implementation of the standards
UNICEF has also entered into an agreement with GICHD to produce
user-manuals.
Supporting the development of the international standards and MRE
coordination efforts on behalf of the MRE community at large, while continuing
to undertake direct MRE programmes stands out as a fairly unique feature of
UNICEF’s approach to mine action over the last five years. At the global
level, UNICEF is also exploring a “public health approach” to mine
action. Such an approach seeks to integrate mine action in public health
planning and services and adopts many tools such as epidemiological
surveillance, morbidity and mortality surveys, and behavioural change
methodologies. The purpose of this work is to help mainstream mine action into
public health and ensure its sustainability. In 2003 UNICEF began training in
public health and mine action with the Centers for Disease Control and
Prevention, a programme of work that will continue over the next three
years.
In the coming years, UNICEF will continue its support of Mine Risk Education
and will seek to apply a more strategic approach which builds on its own
institutional strengths as well as its invaluable partnerships with mine action
NGOs, the ICRC, UN partners, and national mine action authorities. In coming
years this approach will come through the continued promotion of the inclusion
of MRE in the school syllabus, in injury surveillance and public health
planning, child protection, and by integrating MRE processes in demining,
community organizations, and structures.
[1] Mine Action and Effective Coordination:
The United Nations Policy, 53rd session of the UN General Assembly,
1998. [2] New among these countries
for 2004 are Indonesia, Liberia, Chad, Thailand, Nepal and
Senegal. [3] This policy was in the
process of being updated at the time of
writing. [4] These standards
superseded the 1st International Guidelines developed by UNICEF in
1999.