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26. JAHRGANG AUSGABE 1/2015
26ND YEAR ISSUE 1/2015
Behinderung und internationale Entwicklung
Disability and
International Development
Inklusion in der Humanitären Hilfe und Katastrophenvorsorge
Inclusion in Humantarian Aid and Disaster Risk Reduction
Inhaltsverzeichnis Impressum/Masthead
Table of Contents Behinderung und internationale Entwicklung
Disability and International Development
Herausgeber/Editor
Behinderung und Entwicklungszusammenarbeit e.V./
Disability and Development Cooperation
Anschrift/Address
Wandastr. 9, 45136 Essen
Editorial .......................................................................3 Tel.: +49 (0)201/17 89 123
Fax: +49 (0)201/17 89 026
E-Mail: info@inie-inid.org
Schwerpunkt/Focus Internet: www.zbdw.de
Inklusion in der Humanitären Hilfe und Katastrophenvor
sorge/Inclusion in Humantarian Aid and Disaster Risk Re Für blinde und sehbehinderte Menschen ist die Zeit
duction schrift im Internet erhältlich./For persons with visual im
pairment, an electronic version of the journal is
Disability Inclusive Humanitarian Action and Disaster Risk available at www.zbdw.de
Reduction: A Story of Successes and Ongoing Challenges
Redaktionsgruppe/Editorial Board
Valerie Scherrer ..............................................................4
Isabella Bertmann, Christine Bruker, Jana Offergeld,
UNHCR’s Experience in Strengthening Protection of Prof. Dr. Sabine Schäper, Gabriele Weigt
Persons with Disabilities in Forced Displacement Schriftleitung/Editorship
Kirstin Lange.................................................................10 Gabriele Weigt
Redaktionsassistenz/Editorial Assistance
Emergency Wheelchair Services Katharina Silter
Lucie Pannell/Sarah Sheldon/Tamsin Langford ...............15 Gestaltung/Layout
Amund Schmidt
The Route to Disability Inclusive Humanitarian Aid:
Druck/Print
Experience From the Field
Anne Ernst ....................................................................20 Druckerei Nolte, Iserlohn
Bankverbindung/Bank Details
Bank für Sozialwirtschaft
BIC: BFSWDE33XXX
IBAN: DE19 3702 0500 0008 0407 02
Berichte/Reports ........................................................26
Die Zeitschrift Behinderung und internationale Entwick
lung ist eine Pubilikation des Instituts für inklusive Ent
wicklung. Das Institut wird getragen von Behinderung
Kurzmeldungen/Notes..............................................30 und Entwicklungszusammenarbeit e.V.
The journal Disability and International Development is
a publication of the Institute for Inclusive Development.
The Institut ist part of Disability and Development Cao
Literatur/Reviews .....................................................36 peration.
Hinweis: Für den Inhalt der Artikel sind die AutorInnen
verantwortlich. Veröffentlichte Artikel stellen nicht un
Veranstaltungen/Events............................................42 bedingt die Meinung der Redaktion dar. Die Veröffentli
chung von Beiträgen aus der Zeitschrift in anderen Pub
likationen ist möglich, wenn dies unter vollständiger
Quellenangabe geschieht und ein Belegexemplar über
sandt wird.
Please note that the authors are responsible for the
content of the articles. Published articles do not neces
sarily reflect the opinion of the editorial board. Papers
published in the journal Disability and International De
velopment may be reprinted in other publications if cor
rectly cited and if a copy is forwarded to the contact
provided above.
ISSN 2191-6888 (Print)
ISSN 2199-7306 (Internet)
2 Behinderung und internationale Entwicklung 1/2015
Disability and International Development
EDITORIAL
Editorial
Liebe Leserinnen und Leser, Dear Readers,
im Jahr 2014 waren mehr als 50 Millionen Menschen in 2014, more than 50 million people were dis
auf der Flucht, so viele, wie seit dem zweiten Welt placed, a number of refugees that has not been
krieg nicht mehr. Ursache der Fluchtbewegungen sind seen since World War II. The massive refugee move
die vielen kriegerischen Auseinandersetzungen welt ments have been caused by the high number of
weit, aber auch Naturkatastrophen. Humanitäre Not armed conflicts worldwide as well as natural disas
situationen betreffen alle Menschen. Menschen mit ters. Humanitarian disasters affect all people. How
Behinderung sind jedoch in Notsituationen besonders ever, persons with disabilities face disproportionate
gefährdet und werden immer noch von vielen Hilfs risks in disaster situations and are often excluded
maßnahmen ausgeschlossen. from relief and rehabilitation processes.
Die Beiträge in diesem Heft zeigen, dass die UN The articles in this issue show that the UN Con
Konvention über die Rechte von Menschen mit Behin vention on the Rights of Persons with Disabilities
derung auch in der Humanitären Hilfe und der Kata contribute to increase awareness of national and in
strophenvorsorge dazu beiträgt, das Bewusstsein der ternational stakeholders on the rights of persons
nationalen und internationalen Akteure für das Recht with disabilities to be included in humanitarian re
auf Inklusion zu stärken. sponse and disaster risk reduction. In 2006, the
Eine erste Bestandsaufnahme zur Inklusion von journal Disability and Development already pub
Menschen mit Behinderung in die Humanitäre Hilfe lished an issue focusing on inclusion of persons with
machte die Zeitschrift Behinderung und internationale disabilities in emergency response. Much has hap
Entwicklung bereits im Jahr 2006. Seitdem hat sich viel pened since then: The article by Valerie Scherrer
getan. Der Beitrag von Valerie Scherrer gibt einen Über gives an overview of main developments in the past
blick über die Entwicklungen in den letzten Jahren. few years.
Auf internationaler Bühne haben sich Menschen On the international stage, persons with disabili
mit Behinderung erfolgreich bei der dritten Weltkon ties successfully participated at the third World Con
ferenz der Vereinten Nationen zur Risikoreduzierung ference on Disaster Risk Reduction in Sendai, Japan.
von Katastrophen (März 2015) im japanischen Sendai Inclusion of persons with disabilities is well embed
eingebracht. Das Thema Inklusion ist fest in dem neu ded in the Sendai Framework for Disaster Risk Re
en weltweiten Aktionsplan zur Risikoreduzierung ver duction 2015 - 2030. Please refer to the article writ
ankert. Lesen Sie dazu den Beitrag von Martin Kunst ten by Martin Kunstmann, who also introduces the
mann, der sich zudem einem innovativen Netzwerk Disability Inclusive Disaster Risk Reduction Network
der Katastrophenvorsorge widmet. Auch wichtige Or (DiDRRN). Furthermore, important UN organisations
ganisationen der Vereinten Nationen, wie UNHCR such as UNHCR (United Nations High Commis
(United Nations High Commissioner for Refugees), er sioner for Refugees) are on their way to develop ap
arbeiten Ansätze für ihre Arbeit, um Menschen mit proaches to include persons with disabilities in hu
Behinderung angemessen zu berücksichtigen. Lesen manitarian response, as described by Kirstin Lange.
Sie dazu den Beitrag von Kirstin Lange. As part of its quality management, the German
In Deutschland entwickelt das Auswärtige Amt im Federal Foreign Office also enhances its efforts to
Rahmen seiner Qualitätsentwicklung Ansätze, wie vul take into account the needs of vulnerable groups in
nerable Gruppen aktiv in die Humanitäre Hilfe einbe humanitarian action. The inclusion of persons with
zogen werden können und nimmt entsprechend auch disabilities is seen as an important aspect of good
Menschen mit Behinderung verstärkt in den Blick. Der humanitarian practice. Anne Ernst provides an in
Beitrag von Anne Ernst beschreibt, wie die Forderung sight how the inclusion of persons with disabilities is
nach Inklusion von Menschen mit Behinderung in der put into practice in the daily work of a humanitarian
praktischen Arbeit einer Humanitären Hilfsorganisati organisation and describes main challenges to be
on umgesetzt wird und welche Herausforderungen es met. Finally, Lucie Pannell's article focuses on the
zu bewältigen gibt. Lucie Pannells Beitrag lenkt specific needs of persons with disabilities in disaster
schließlich das Augenmerk darauf, dass auch die spe situations that need to be addressed.
zifischen Bedarfe von Menschen mit Behinderung in The editorial board would like to thank Anne
einer Notsituation berücksichtigt werden müssen. Ernst, consultant for disability issues at Johanniter
Die Redaktionsgruppe bedankt sich sehr für das International Assistance, who supported the prepa
Engagement von Anne Ernst, Fachberaterin für Behin ration of this issue.
derung der Johanniter Auslandshilfe, die diese Aus
gabe mit gestaltet hat. We wish you an inspiring reading.
Your editorial board.
Wir wünschen Ihnen eine interessante Lektüre.
Ihre Redaktionsgruppe
Behinderung und internationale Entwicklung 1/2015 3
Disability and International Development
ARTIKEL/ARTICLE
Disability Inclusive Humanitarian Action and Disaster
Risk Reduction: A Story of Successes and Ongoing Challenges
Valerie Scherrer
In the past ten years, awareness about disability has increased among development organisations, however
it took longer to open the eyes of the humanitarian sector including for the development of strategies re
lated to Disaster Risk Reduction (DRR). However immense shift of understanding and project implementation
have happened within the past five years with many organisations realising that they were missing out 15%
of affected population in their emergency responses or while planning. The article will explain some of the
reasons for the shift and still existing barriers to a full inclusion of disability issues in emergency and disaster
risk reduction.
Introduction
large num
The World report on disability published in bers of re
2011 by the World Health Organisation and spondents in
the World Bank (WHO 2011) suggests that 15% the Americas
of the population (1 billion) live with disabili and Asia. The
ties. Persons with disabilities generally are af survey high
fected by poorer health conditions, lower edu lighted that
cation achievements, fewer economic opportu 71% of par
nities and higher rates of poverty than persons ticipants have
without disabilities. In these circumstances the no personal
risks faced by persons with disabilities, their preparedness
family and communities regarding disaster is plan and
higher than for the general population. most of them
I’ve been working in the field of disability are not
and development/humanitarian action since aware of dis
1997 starting in long standing Burmese refugee aster risk re
camps in Thailand and then being involved in duction plans.
all major disasters and crisis around the world It is important to mention that the Hyogo
trying to include and address needs of persons framework for action 2005 -2015 (UN 2007)
with disabilities in humanitarian responses. I’ve did not consider disability but only mentioned
witnessed enormous changes in how main the need to promote the implementation of so
stream humanitarian organisations consider cial safety nets to be developed to support per
persons with disabilities in their operations. At sons with disabilities as means to decrease un
the start of my involvement in this sector, main derlying risk factors (priority 4). In contrast, the
stream organisations seldom included persons recently adopted Sendai Framework for Disaster
with disabilities; humanitarian workers did not Risk Reduction 2015-2030 (UNISDR 2015) is
pay attention to disability. They were sometimes one of the most inclusive mainstream docu
made aware through the large number of in ments ever endorsed by 187 States. It considers
jured people in need of medical care
and therefore looked at persons with
disabilities as passive victims requir
ing specific medical care but not as
members of the affected community
having capacities.
In 2013, the United Nation Inter
national Strategy for Disaster Reduc
tion conducted a survey on disaster
risk reduction and persons with dis
abilities in order to understand the
challenges they face. More than
5’400 persons with disabilities re
sponded to the survey worldwide with
4 Behinderung und internationale Entwicklung 1/2015
Disability and International Development
ARTIKEL/ARTICLE
persons with disabilities as one of the key ac interventions covering large populations. It is
tors and partners contributing to increase resil also unlikely that persons with disabilities ac
ience of nations and communities. It also in cess the information about distribution sites and
cludes strong references to accessibility and goods. If they do access, the risk of mistreat
universal design taking an important step to ment is high, as they often need support to
wards an inclusive society. This is a clear sign bring goods back home and will have to pay for
that disability isn’t invisible any more! the services.
Barriers Faced by Persons with Summary of Barriers Faced by Persons with
Disabilities
Disabilities Attitudinal:
According to the definition of the UN conven - Negative perception of disabilities based on
tion on the rights of persons with disabilities, religious or cultural believes and community
“Persons with disabilities include those who understanding of causes of disabilities.
have long-term physical, mental, intellectual or - Humanitarian actors involved in emergency
sensory impairments which in interaction with response believe that specific expertise is
various barriers may hinder their full and effec necessary to meet the needs of persons with
tive participation in society on an equal basis disabilities and often forget that their pri
with others” (UN 2006). The above statement mary needs such as food, shelter, water, etc.
highlights that disability is strongly linked with are the same as for anybody else.
environmental barriers that are present in so - Persons with disabilities themselves often
cieties. Those barriers may for example be atti lack confidence and self-esteem to claim for
tudes, insufficient accessibility of infrastructure, their rights and contribute to emergency re
communication and information, political dis sponses or disaster risk reduction programs.
crimination and economic disadvantage. In Dis Communication/information:
aster Risk Reduction programs some key actions - Information about emergency responses of
are related to establishing early warning sys ten is provided in inaccessible format that
tems that will ensure appropriate information cuts off persons with disabilities to access
about hazard risks so that people are able to them.
protect their assets on time and to evacuate - Information often is disclosed only in one or
when necessary. Those early warning systems two formats (written, audio) making it diffi
are based on the capacity of people to under cult for persons with sensory or intellectual
stand them and on an efficient information sys disabilities to understand them and act ac
tem. Often the early warning messages are cordingly.
given through media or loudspeaker, inaccessi - Feedback and complains mechanisms are
ble to people with hearing impairments or to set up through mobile phone, written forms
older people. Persons with intellectual disabili or focus group discussions that often exclude
ties may have difficulties in understanding or persons with disabilities.
construing the message so that they know what Infrastructure/accessibility:
to do to seek protection, especially when not - Emergencies are not discriminative and often
accompanied. happen in complex context where existing
Other courses of action are related to com infrastructures such as shelters, health serv
munity mapping looking at identifying vulner ices, etc. are not physically accessible.
abilities and capacities of the community in or - Persons with disabilities often can’t use exist
der to define evacuation plans, emergency ing shelters as facilities such as latrines and
shelters and supplies. Often the mapping is bath areas are not usable by them.
done through community meetings that persons - Approaches such as cash distribution
with mobility or hearing impairment are unable through vouchers or food/cash for work are
to attend. Furthermore, negative perceptions of not planned in order to provide opportuni
disability lead family members to protect or ties to persons with disabilities to benefit
hide persons with disabilities making them in from them.
visible in the mapping exercise and putting These obstacles are just a summary of some
their life at higher risk. of the existing barriers; those are often exacer
In humanitarian responses and especially in bated by a crisis or a disaster. The built environ
a first phase, distribution is done at a central ment may be destroyed or change through dis
point that often is not accessible. Furthermore placements and therefore further limits the mo
rapid needs assessment does not look at spe bility of persons with disabilities. Social network
cific household composition but define broad support may be disrupted either because social
Behinderung und internationale Entwicklung 1/2015 5
Disability and International Development
ARTIKEL/ARTICLE
and health services are not functioning any is since then implemented1. The clusters have
more or because of loss of family/community enhanced the exchange of information but also
members. Usual communication means may be provided a space and forum to highlight gaps
disrupted and therefore hinder capacity of peo within the humanitarian responses. The Inter-
ple to access information. Agency Standing Committee’s Transformative
Agenda1 also has provided guidance on local
Elements That Facilitate Changes leadership in emergency response and stronger
implementation of accountability mechanisms.
UN Convention on the Rights of Persons It provides a greater voice to people affected by
with Disabilities (UNCRPD) crisis or disasters and has facilitated the contri
In 2006, the United Nation Convention on the bution of organisations of persons with disabili
Rights of Persons with Disabilities (UNCRPD) was ties in the implementation and coordination of
adopted and put forward for signatures, ratifi relief activities.
cation and implementation. The UNCRPD pro At the same time the humanitarian sectors
vides disability stakeholders a great instrument recognised the need to better link emergency
to advocate for the rights of persons with dis responses with development and set up an
abilities but also to hold states accountable to early recovery cluster. Early Recovery is defined
implement it. as recovery that begins early in a humanitarian
- Article 11 UNCRPD - Situations of risk and setting. It is a multi-dimensional process,
humanitarian emergencies: States Parties guided by development principles. It aims to
shall take, in accordance with their obliga generate self-sustaining and nationally owned
tions under international law, including inter resilient processes for post-crisis recovery. Early
national humanitarian law and international recovery encompasses the restoration of basic
human rights law, all necessary measures to services, livelihoods, shelter, governance, secu
ensure the protection and safety of persons rity and the rule of law, environment and social
with disabilities in situations of risk, including dimensions, including the reintegration of dis
situations of armed conflict, humanitarian placed populations. It stabilises human security
emergencies and the occurrence of natural and addresses underlying risks that contributed
disasters. to the crisis2. The early recovery cluster pro
The guiding principles of the Convention as vides great opportunity for including persons
well as other articles on accessibility have also with disabilities and ensuring that reconstruc
contributed to the inclusion of persons with dis tion considers accessibility for persons with dis
abilities in international development and co abilities. It contributes to a development per
operation. In the past ten years, organisations spective into emergency response which brings
of persons with disabilities and disability or a better understanding of the need to consider
ganisations used the UNCRPD to raise aware excluded and marginalised groups within early
ness on disabilities making disability visible to recovery plans. As an example, since the Paki
all. stan earthquake in 2005 within the cluster co
ordination system a specific working group has
From the Medical Model to the Social been set up to coordinate action related to per
Model – Understanding Disability Issues sons with disabilities. Depending on the type of
The UNCRPD definition as well as the develop disaster/crisis, the disability working group ori
ment of the International Classification of Func ents its work either towards specific services or
tioning Disability and Health by WHO (2001) inclusion of persons with disabilities in main
has triggered a change in understanding dis stream relief actions. However it is to be noted
ability; from a medical perspective to a human that the disability working group is not part of
rights and social model. Disability is defined as the official cluster system but needs to be set up
the result of interaction between environmental separately for every emergency and therefore it
(societal) factors and personal factors (condi is not yet a sustainable strategy for inclusion.
tions), whereby society and organisations can
actively change environments and therefore fa SPHERE Standards3
cilitate functioning and increase capacities of In the revision of the SPHERE standards in 2011
persons with disabilities for better participation. a focal point on disability participated to the re
vision process alongside others such as gender,
Humanitarian Reform protection, etc. leading to inclusion of persons
Since 2004, with the Asia- Pacific Tsunami, the with disabilities in the handbook. The SPHERE
humanitarian sector realised that it needed to standards, being a well-known and widely used
be reformed and a cluster coordination system handbook, has contributed to raise awareness
6 Behinderung und internationale Entwicklung 1/2015
Disability and International Development
ARTIKEL/ARTICLE
of humanitarian workers on disability and trig 2015 framework on DRR was a success. It is the
gered some inclusive initiatives and requests for very first time that disability is provided with an
support to disability organisations. equal voice to other groups in the process of
defining an international framework. As a re
Organisation of Persons with Disabilities sult, the Sendai framework for DRR adopted in
Leadership March 2015 is highly disability inclusive and the
Through the support of organisations such as world conference on DRR in Japan was made
CBM or Handicap International, organisations accessible to persons with disability (physical
of persons with disabilities have taken a and access to information). This should be con
stronger role in raising awareness, implement sidered as a milestone towards inclusion and
ing and contributing to emergency responses pave the way for further consideration of per
and disaster risk reduction programs. The par sons with disabilities in the up-coming interna
ticipation of persons with disabilities, their rep tional events, such as the Sustainable Develop
resentative organisations and government bod ment Goals, Climate Change Conference and
ies responsible for disability issues in emer especially towards the World Humanitarian
gency responses increased the understanding Summit in May 2016 in Turkey.
of mainstream stakeholders on the existing re
sources and capacities to support inclusion of Future Opportunities and
persons with disabilities. It allows a paradigm
shift in the perception of persons with disabili
Challenges
ties as passive victims to being recognised as Despite all these shifts and successes there are
contributing partners with possibilities to in still a number of challenges to ensure full inclu
crease efficiency and effectiveness of humani sion and consideration of persons with disabili
tarian action and disaster risk reduction strate ties in humanitarian action and disaster risk re
gies. During the response to the cyclone in Phil duction strategies.
ippines, an Ageing and Disability Task Force
(ADTF) was set up through the protection clus Improving Data on Disability
ter. The ADTF role was to provide information Despite recent improvement on gathering reli
and data about affected persons with disabili able data related to disability, lack of compre
ties, expertise on how to include persons with hensive data is a clear barrier to the design,
disabilities in mainstream relief and capacity implementation and monitoring of disability in
building workshops as well as to ensure link clusive humanitarian action and risk reduction
ages between mainstream relief organisations plans. It is crucial that simple data collection
and organisations of persons with disabilities. tools are developed and implemented to facili
The ADTF members include international dis tate decision making and understanding of dis
ability and ageing organisations, Filipino Disa ability perspectives. Often plans are developed
bled Peoples’ Organisations (DPO) and the Na based on assumption or consultation only of or
tional Council on Disability Affairs. This multi ganisations of persons with disabilities in major
stakeholders approach ensured a quality re urban cities that often do not know or represent
sponse to the basic and specific needs of per persons with disabilities living in rural remote
sons with disabilities as well as provided guid areas and facing different challenges. Not hav
ance and key elements to link up relief with de ing this baseline data is making monitoring of
velopment, including strategies to reduce im improved inclusion difficult and reporting a real
pact of disaster and increase resilience of com challenge for mainstream stakeholders.
munities towards future disasters.
Diversity of Disabilities
Post-2015 Disaster Risk Reduction Though mainstream stakeholders have made
progress in addressing the needs of persons
Framework – Sendai Framework for with disabilities, it still addresses only the most
Disaster Risk Reduction visible categories of disabilities, such as physi
One of major shift seen during the various cal and sensory disability. The impression that
post-2015 negotiation processes is the recogni response and disaster risk reduction programs
tion of persons with disabilities and representa are then inclusive and that the task is accom
tive organisations as key stakeholders. For the plished will remain a misconception until per
build-up to the World Disaster Risk Reduction sons with more complex disabilities are in
(DRR) conference in Sendai, the creation of a cluded. It is challenging not to leave behind
disability stakeholder group4 to contribute to persons who are deafblind, persons with psy
the development and negotiations of the post chosocial disabilities and persons with multiple
Behinderung und internationale Entwicklung 1/2015 7
Disability and International Development
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disabilities. Disability inclusion will not be suc emergency entitled “All under one Roof”5. A
cessful before all persons with disabilities are consortium on Age and Disability including
considered. among others Help Age International, Handi
cap International and CBM is currently imple
Lack of Evidence Based Information and menting a project supported by UK and US
Research governments to develop training for main
Very few scientific based evidence or research stream stakeholders to include older people
exists about disability in humanitarian action and persons with disabilities in emergency re
and risk reduction, so that strategies are devel sponse. It includes the development of stan
oped based only on anecdotal facts and/or pro dards and online training that will be made
ject outcomes. The risk is to miss the real needs available to all. The disability inclusive DRR
and challenges faced by persons with disabili Network brings together mainstream organisa
ties through their diversity. tions, disability organisations and DPOs with
the objective to develop models and tools for
Expertise disability inclusion in DRR6.
There are and will be increased requests of
support from mainstream organisations to Conclusions
identify measures to ensure quality inclusion,
however the capacity of DPOs need to be The above mentioned progresses demonstrate
strengthened and built to maintain their credi a clear shift in understanding disability issues in
bility as key leaders and contributors. There is emergency responses and disaster risk reduc
still a gap in cross-understanding about con tion strategies. The awareness raising and lead
straints and operation procedures between ership of DPOs have been successful, however
mainstream humanitarian stakeholders and we need to continue to advocate for the rights
persons with disabilities – learning each other’s of persons with disabilities and to build up fur
jargon and specificity. ther expertise and tools to facilitate the realisa
tion of disability-inclusive programs. Sufficient
Financing resources need to be allocated to this process
Despite an evolving understanding among hu and governments need to be held accountable
manitarian donors, there are still questions to their commitments or legal instruments re
about the cost of reasonable accommodation to lated to disability. It has been amazing for me
ensure full inclusion of persons with disabilities. to witness and contribute to those changes in
The financing of disability inclusion is perceived the past 20 years, more needs to be done but
as decreasing the available resources to main we have moved a long way forward to leave no
stream response instead of being looked at as one behind and build up an inclusive society.
the responsibility of governments to ensure that
everyone has equal opportunity to access life
saving programs. Disability is not yet included Notes
in funding guidelines requirements therefore 1. Humanitarian reform: http://www.humanitarianinfo.
grants are approved which are not inclusive of org/iasc/pageloader.aspx?page=content-template
disability. Some governments have made pro default&bd=87.
gresses in developing reconstruction accessibil 2. Visit: https://www.humanitarianresponse.info/clus
ity guidelines or issuing political commitment to ters/early-recovery.
inclusion, however, much remains to be done. 3. Visit: http://www.sphereproject.org/handbook/.
4. Visit: http://www.wcdrr.org/majorgroups/other.
Opportunities 5. Visit: http://www.ifrc.org/en/what-we-do/disaster
Mainstream organisations have taken initiatives management/responding/services-for-the-disaster-af
to develop their capacities and tools to include fected/shelter-and-settlement/shelter-library/.
persons with disabilities in their responses and 6. Visit: www.didrrn.net.
risk reduction strategies and programs. The
World Health Organisation together with CBM References
and others has recently published a guidance UNISDR (2015): Sendai Framework for Disaster Risk Re
note for inclusion of disability in emergency risk duction 2015-2030. Available at http://www.wcdrr.
management for health stakeholders (2013). org/preparatory/post2015. Visited on 10 April 2015.
The international Federation of the Red Cross UNITED NATIONS (2006): Convention on the Rights of
together with CBM and Handicap International Persons with Disabilities. Available at http://www.
has published an important guideline for dis un.org/disabilities/convention/conventionfull.shtml.
ability-inclusive shelter and settlements in Visited on 10 April 2015.
8 Behinderung und internationale Entwicklung 1/2015
Disability and International Development
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UNITED NATIONS (2007): Hyogo Framework for Action 15% de la population affectée quand elles répondent aux
2005-2015. Building the Resilience of Nations and catastrophes ou planifient leurs projets. L'article expliquera
Communities to Disasters. Available at http://www. quelques-unes des raisons pour ce changement ainsi que
unisdr.org/we/coordinate/hfa. Visited on 10 April les obstacles encore existants qui empêchent une pleine in
2015. tégration des questions du handicap dans la réduction des
WHO (2001): International Classification of Functioning, risques d’urgences et de catastrophes.
Disability and Health (ICF). Available at http://www.
who.int/classifications/icf/en/. Visited on 10 April Resumen: En los últimos diez años, la toma de conciencia
2015. sobre la discapacidad ha aumentado entre las organizacio
WHO (2013): Guidance Note on Disability and Emer nes de desarrollo, sin embargo, tomó más tiempo abrir los
gency Risk Management for Health. Available at ojos del sector humanitario para el desarrollo de estrate
http://www.who.int/hac/techguidance/preparedness/ gias relacionadas con la Reducción del Riesgo de Desastres
disability/en/. Visited on 10 April 2015. (RRD). No obstante, en los últimos cinco años ha sucedido
WHO/WORLD BANK (2011): World Report on Disability. un inmenso cambio de comprensión y ejecución de los
Available at http://www.who.int/disabilities/world_ proyectos, ya que muchas organizaciones se dieron cuenta
report/2011/en/. Visisted on 10 April 2015. de que estaban perdiendo el 15% de la población afectada
en sus intervenciones de emergencia.
Zusammenfassung: In den letzten zehn Jahren hat das El artículo explica algunas de las razones para el cambio y
Bewusstsein über Menschen mit Behinderung in Entwick las barreras que aún existen para una plena inclusión de
lungsorganisationen zugenommen, allerdings dauerte es las personas discapacitadas en la reducción del riesgo de
länger, die Augen der im humanitären Bereich tätigen Or emergencias y desastres.
ganisationen einschließlich deren Entwicklung von Strategi
en zur Katastrophenvorsorge für dieses Thema zu öffnen. Author: Valerie Scherrer is CBM International Director
Trotzdem fand innerhalb der letzten fünf Jahre ein enormer of the Emergency Response Unit. She has been work
Wandel im Verständnis und in der Projektdurchführung ing in the field of disability and humanitarian action
statt, in denen viele Organisationen erkannten, dass sie since 1997. She has been part of first response team
15% der betroffenen Bevölkerung in ihren Krisenmaßnah following all major disasters and crisis in the past 15
men und deren Planung außen vor gelassen haben. Der Ar years developing disability inclusive emergency re
tikel erläutert einige der Gründe für den Wandel und die sponses and working alongside mainstream stake
immer noch existierenden Barrieren für die volle Inklusion holders to build their capacities to include disabilities.
von behinderungsspezifischen Themen in Krisensituationen Valerie also started developing the Disability inclusive
und Katastrophenvorsorge. Disaster Risk Reduction project in 2005 in Bangladesh
as a way to improve and trigger inclusive emergency
Résumé: Au cours des 10 dernières années, la sensibilisa responses. She has been very active together with Per
tion sur le handicap a augmenté auprès des organisations sons with Disabilities Organisations in advocating for
de développement, mais il a fallu plus de temps pour ouvrir inclusion of disabilities in both humanitarian actions
les yeux du secteur humanitaire, y compris en ce qui con and Disaster Risk Reduction Strategy from local to na
cerne le développement des stratégies liées à la réduction tional and international level. Valerie has also contrib
des risques de catastrophes (RRC). Cependant, on a assisté uted to a number of tool development and publication
à un immense changement de compréhension et de mise in relation to disability and emergency/disaster risk
en œuvre de projets dans les 5 dernières années: de nom reduction.
breuses organisations se rendent compte qu'elles omettent Contact: Valerie.Scherrer@cbm.org.
Behinderung und internationale Entwicklung 1/2015 9
Disability and International Development
ARTIKEL/ARTICLE
UNHCR’s Experience in Strengthening Protection of
Persons with Disabilities in Forced Displacement
Kirstin Lange
This article outlines the United Nations High Commissioner for Refugees (UNHCR)’s approach to inclusion of
persons with disabilities in protection and assistance programming. Underpinning UNHCR’s approach to
working with persons with disabilities is adherence to the principle of non-discrimination, recognition of in
dividual diversity and a strong emphasis on participation.
Introduction
ness and protect stateless persons. In support of
The World Health Organisation (2014:29) esti its core activities on behalf of refugees,
mates that 15% of the world’s population has UNHCR’s Executive Committee and the UN
some form of disability. With 51.2 million per General Assembly have authorised involvement
sons currently displaced worldwide (UNHCR with other groups. These include former refu
2014)1, it can be estimated that there are ap gees who have returned home and internally
proximately 7.6 million persons with disabilities displaced people (IDP). These people are re
among them. Persons with disabilities may have ferred to collectively as persons of concern to
physical, mental, intellectual or sensory impair UNHCR. Within these populations, persons with
ments, they may be women, girls, men or boys, disabilities face particular risks and have spe
and come from diverse backgrounds2. In situa cific needs. Protection and assistance pro
tions of displacement all of these aspects of grammes must thus be designed, implemented,
age, gender and diversity intersect to influence monitored and evaluated in a disability inclu
protection risks and shape an individual’s expe sive manner.
rience. In 2010 as a demonstration of leadership
The importance of considering the particular and commitment to integrate disability in all
needs and rights of persons with disabilities in protection and assistance responses, UNHCR’s
humanitarian response, including in situations governing Executive Committee adopted a Con
of forced displacement, is well recognised in in clusion on Refugees with Disabilities and other
ternational law and standards. For example, Persons with Disabilities Protected and Assisted
Article 11 of the UN Convention on the Rights by UNHCR (UNHCR 2010). This document rec
of Persons with Disabilities (2006:10) sets out ognises that specific needs of persons with dis
the obligation of States Parties to “…ensure the abilities are often overlooked, especially during
protection and safety of persons with disabilities early phases of humanitarian emergencies. It
in situations of risk, including situations of calls upon States, UNHCR and partners to in
armed conflict, humanitarian emergencies and clude refugees and other persons with disabili
the occurrence of natural disasters”. Further, ties in relevant policies and programmes and to
the Sphere Handbook: Humanitarian Charter provide access to services. The conclusion also
and Minimum Standards in Humanitarian Re reiterates the importance of participation by
sponse recognises that persons with disabilities persons with disabilities in the design and im
“…face disproportionate risks in disaster situa plementation of services and programmes.
tions and are often excluded from relief and re Inclusion of persons with disabilities is also
habilitation processes” (The Sphere Project enshrined in UNHCR’s Age, Gender and Diver
2011:17). Despite this recognition, the inclu sity (AGD) Policy, which requires its operations
sion of persons with disabilities in humanitarian worldwide to ensure that all persons of concern
response in practice continues to be a chal enjoy their rights on an equal footing and are
lenge, with meaningful participation in plan able to participate fully in decisions that affect
ning and decision-making being particularly their lives (UNHCR 2011). The AGD Policy em
limited. phasises that individual differences play a cen
tral role in determining opportunities, capaci
UNHCR’s Policy Framework for Disability ties, needs and vulnerability. Following on from
Inclusion the AGD Policy, UNHCR in 2011 developed op
UNHCR’s primary purpose is to safeguard the erational guidance on protection and assis
rights and well-being of refugees. UNHCR also tance for persons of concern living with disabili
has a mandate to prevent and reduce stateless ties. This Need to Know Guidance on Working
10 Behinderung und internationale Entwicklung 1/2015
Disability and International DevelopmentARTIKEL/ARTICLE
with Persons with Disabilities in Forced Displace In Lebanon, UNHCR recruits over 400 refugee
ment3 outlines the essential elements of disabil outreach volunteers to share their skills and capa
ity inclusive humanitarian response (UNHCR cities with both the Syrian and Lebanese commu
2011a). nities. Volunteers play an important role as advo
cates for persons with disabilities, identifying those
Implementation of Policy in the Field who are most at risk, providing them with infor
While humanitarian actors are increasingly mation and working to decrease social isolation.
aware of the need to include persons with dis One of these volunteers is Ahmad, who has a
abilities in their response, the practical imple physical disability and uses a walking frame to
mentation of policies on disability inclusion re move around.
mains challenging. To achieve the meaningful In their role as volunteers, Ahmad and his wife,
participation of persons of concern in decision Nazmiya carry out home visits together in order to
making regarding their protection and wellbe be able to reach both men and women. During
ing, UNHCR adopts a community-based and their visits, they meet refugees with disabilities who
rights-based approach, which draws on the are isolated in their homes, while others experi
knowledge, skills and experience of the indi ence emotional abuse from family and community
viduals and communities involved. A key com members. According to Ahmad “This affects their
ponent of this approach, the participatory as confidence to do things. They will feel like they
sessment, involves building partnerships with don’t have one disability, but rather many disabili
persons of concern from diverse backgrounds ties. […] I can provide support, communicate and
through structured dialogue. This process is encourage them.” He adds, “The community
usually implemented annually and provides an should not isolate persons with disabilities – they
opportunity for persons of concern to partici all have a role” (WRC 2014a:1).
pate in the identification of protection concerns This is just one example of the ways in which
and generation of solutions. Participatory as persons with disabilities in situations of displace
sessments aim to gather information on specific ment can contribute to their communities. We
protection risks and their underlying causes, as must empower people to use the skills and
well as the capacities and proposed solutions of strengths they have; and remember that everyone
affected persons and communities. Consulta has a role to play in their family and community.
tion with persons with disabilities is required
during participatory assessment exercises, in This story was contributed by Carol El Sayed, Commu
cluding through separate discussions where nity-based Protection Officer, UNHCR Lebanon, el
needed. sayed@unhcr.org
Building on the established participatory as
sessment process, country operations carry out organisations. During this period, WRC con
ongoing dialogue with persons of concern. For sulted with refugees and IDPs with disabilities
example, in Thailand, UNHCR conducts and their care-givers in eight countries to iden
monthly meetings with persons with disabilities tify protection concerns and to gather their per
who have formed self-help groups, providing a spectives on ways to make programmes more
forum for persons with disabilities to access accessible and inclusive. Promising practices
UNHCR, pose questions and to raise issues or and ongoing challenges to disability inclusion
share information. Other country operations in UNHCR operations were subsequently out
have initiated more in-depth assessment of the lined in the report Disability Inclusion- Translat
situation of persons with disabilities. For exam ing Policy into Practice in Humanitarian Action4
ple, according to the AGD Monitoring Report of launched by WRC in 20145.
2014, an assessment conducted in Eritrea iden
tified important gaps in service delivery, includ Identified Concerns of Persons with
ing that some mobility devices that had previ
ously been distributed could not be used due to
Disabilities and UNHCR Response
camp topography and the need for additional UNHCR’s continuous efforts to strengthen im
assistance (such as access to rehabilitation serv plementation of the AGD policy, as well as col
ices). laboration between UNHCR and WRC have
In order to further strengthen implementa produced a substantial body of knowledge and
tion of policy and guidance in the field, UNHCR experience for UNHCR and other humanitarian
partnered with the Women’s Refugee Commis actors to learn from and to build upon. Some
sion (WRC) between 2011 and 2013 to provide examples of the information and practices
technical support and training to UNHCR coun gathered follow.
try offices, implementing partners and disability
Behinderung und internationale Entwicklung 1/2015 11
Disability and International DevelopmentARTIKEL/ARTICLE
Community Participation This approach impedes inclusion of persons
While physical accessibility of buildings and fa with disabilities.
cilities is often one of the first actions consid UNHCR country operations commonly report
ered working with persons with disabilities, this obstacles to access to inclusive education for
was, in fact, rarely raised by refugees them refugee children with disabilities. For example,
selves, according to WRC’s research (2014). In even in countries where host governments al
stead, issues of social inclusion and participa low refugee children to attend local schools, it
tion appear to be far more important, as dem is often reported that in practice few children
onstrated in the following example from Leba with disabilities can access these schools, re
non. sulting in isolation, exposing them to protection
risks and denying them the right to an educa
Access to Services tion. In Jordan, UNHCR is addressing this issue
Lack of access to basic services has been identi by strengthening the referral system with pro
fied as a concern in a number of country op tection partners to ensure that children with
erations, with access impacted by a number of disabilities are identified and can attend public
underlying factors. For example, in Lebanon, school; as well as working with partners to pro
refugees with disabilities have reported a lack vide special education. In two refugee camps in
of information about services and access to Thailand, UNHCR’s implementing partner, Jes
transport to reach services as key concerns. uit Refugee Service (JRS), has special education
While in a number of countries refugees have teachers based in the school to identify educa
access to government services for citizens — for tional needs of each child and develop indi
example in Turkey refugees with disabilities ac vidualised education plans. In addition, JRS
cess social services including disability care al raises awareness on disability issues at Parent-
lowances — this is not the case in all countries Teacher Association meetings; and provides
where UNHCR operates. In contexts where home-based educational opportunities for chil
refugees with disabilities have limited access to dren unable to reach the school, to ensure indi
services, some country operations prioritise per vidualised support and to explore strategies for
sons with disabilities for assistance or appoint future participation in school.
disability focal points to facilitate referral pro
cesses. However, such strategies cannot ad Protection Concerns
dress all concerns surrounding access to assis Violence against persons with disabilities is
tance. For example, if appropriate distribution commonly reported in all contexts; and while
mechanisms are not in place, persons with dis girls with mental and intellectual impairments
abilities may be forced to rely on community are more at risk of sexual violence, men and
members to transport food or non-food items boys are more likely to report physical and psy
back to shelters, in return for a portion of their chological violence. In Lebanon, for example,
supplies or money. There remains a need for Syrian male refugees with injuries and disabili
creative solutions to address the challenges of ties reported that they are targeted at check
access to services in camp and non-camp set points due to a perceived link with fighters in
tings. Syria. In many settings, women and girls feel
A number of country operations have re unsafe even in their own homes, due to the risk
ported a lack of access to specialised services, a of neglect and physical abuse. In order to
gap that is often addressed through partnership strengthen protection of persons with disabili
with a specialist organisation, where these or ties, UNHCR works with partners and commu
ganisations have a presence and where re nities to prevent, identify and respond to differ
sources are available. For example, in Bangla ent types of violence. For example, UNHCR in
desh, where refugees with disabilities had lim Lebanon developed and piloted a training
ited access to specialised services, UNHCR package on case management to identify and
started working with Handicap International to respond to the needs of persons with disabili
assess the needs of refugees in the camps and ties at heightened risk. In Nepal, UNHCR, to
to provide assistive devices. One of the chal gether with the refugee community, developed
lenges for humanitarian actors is that special a system using visual aids to allow persons with
ised services may be unavailable, particularly in hearing impairments to report and describe in
resource-poor settings and at early stages of cidents of sexual and gender based violence
humanitarian emergencies. However, UNHCR (SGBV).
has learned that humanitarian actors often fo Access to registration and documentation
cus on disability specific programs and activi has also been identified as a key protection
ties, rather than on access to regular programs. concern for persons with disabilities in situa-
12 Behinderung und internationale Entwicklung 1/2015
Disability and International DevelopmentARTIKEL/ARTICLE
tions of forced displacement. Undocumented The Way Forward
individuals are known to be particularly vulner
able to exploitation and abuse and face serious In order to advance inclusion of persons with
difficulties in obtaining urgently needed assis disabilities within protection and assistance
tance and durable solutions. In response, programming, UNHCR has embarked upon a
UNHCR employs a number of actions to identify capacity building initiative, which includes the
and ensure registration for persons with dis engagement of a Senior Disability Advisor, to
abilities. For example, in Turkey, refugee com support the integration of disability and to
mittees and representatives conduct tent visits manage a new project to strengthen the pro
to identify persons with specific needs, includ tection of persons with disabilities in forced dis
ing persons with disabilities. In Lebanon, mo placement situations. The two-year project aims
bile registration and registration in absentia to build the capacity of UNHCR operations to
has been established for those unable to reach implement UNHCR policy and guidance on dis
registration centers to ensure that refugees with ability. Once again partnering with the
disabilities have access to registration pro Women’s Refugee Commission, the project will
cesses. provide technical support to eight UNHCR
country operations and consultations with per
Community Support Structures sons with disabilities will be a core component.
Situations of displacement often exacerbate the Training on disability inclusion for UNHCR staff
vulnerability and isolation of persons with dis and partners; as well as building of networks
abilities due to a loss of family and community between UNHCR and host community DPOs,
support structures. For example, in the Central will be particular areas of focus. Action plans
African Republic, it was found that due to a for strengthening protection of persons with
break down in the social fabric brought about disabilities will be developed jointly by country
by displacement, community support for per operations and displaced persons with disabili
sons with disabilities is minimal and they face ties, with support from DPOs. A key output of
stigma and discrimination both from refugee the project will be a comprehensive training
and host communities. For children and young package for UNHCR staff and other humanitar
people, this exclusion reduces access to educa ian actors on strengthening protection of per
tion and social networks that could enhance sons with disabilities in forced displacement.
their protection from various forms of violence.
In response, a number of country operations Conclusion
have prioritised community awareness raising
activities regarding the rights of persons with Situations of forced displacement generate vul
disabilities and support to community-based nerabilities and protection risks for persons with
approaches to empowerment. For example, in disabilities, above and beyond those faced by
Nepal, women with disabilities formed groups other segments of displaced populations. Per
to raise awareness and subsequently undertook sons with disabilities also come to situations of
SGBV prevention activities together with the displacement with valuable skills and resources,
wider community. which are often overlooked by humanitarian
While disabled persons organisations (DPOs) actors. It is thus incumbent upon humanitarian
can play an important role in advocating for the actors to both strengthen the inclusion of per
rights of persons with disabilities, inclusion and sons with disabilities within protection and as
access to services and programs, the lack of sistance programmes and to promote their em
networking between national DPOs and refu powerment within their families and communi
gees with disabilities is an obstacle. In many ties. As this article has highlighted, a key to do
cases, host community DPOs are not aware of ing so is to ensure the participation of persons
the situation of displaced persons with disabili with disabilities in the assessment of protection
ties; and the building of greater linkages be risks, design and implementation of protection
tween UNHCR, displaced persons and host and assistance programming, as well as in
community DPOs has been identified as a nec monitoring and evaluation. Strategies to facili
essary action. While UNHCR’s engagement tate this participation need to be specific to
with DPOs is currently limited, a new project each particular context. A failure to do so leads
(outlined below) in selected countries has now to programming that is not responsive to the
been launched to address this challenge and to needs of persons with disabilities and misses
strengthen a community-based and rights the opportunity to build on their capacity to
based approach to working with persons with make positive contributions to their communi
disabilities in situations of forced displacement. ties.
Behinderung und internationale Entwicklung 1/2015 13
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