A Rapid Assessment of Children’s Homes in post … ensure that a generation hit by such an unprecedented tragedy is able to move forward ... A Rapid Assessment of Children’s Homes

A Rapid Assessment ofChildren’s Homes

in post-Tsunami Aceh

DEPSOS and Save the Children2006

A Rapid Assessm

ent of Children’s Hom

es in post-Tsunami Aceh

DEPSO

S and Save the Children - 2006

With support from:

Save the Children

A Rapid Assessment ofChildren’s Homes

in post-Tsunami Aceh

DEPSOS and Save the Children2006

With support from:

Save the Children

The International Save the Children Alliance is the world’s leading independent children’s rights organization, with members in 27 countries and operational programmes in more than 100. We fight for children’s rights and deliver lasting improvements to children’s lives worldwide.

VisionSave the Children works for a world:- That respects and values each child- That listens to children and learns- Where all children have hope and opportunity

MissionSave the Children fights for children’s rights.We deliver immediate and lasting improvements to children’s lives worldwide

This report was written by Florence Martin and Tata Sudrajat, Child Protection Advisors with Save the Children UK based in the Indonesian Ministry of Social Affairs (DEPSOS).

It is part of the International Save the Children Alliance’s overall response to the Tsunami and Earthquakes in Aceh Province, Indonesia, with support from the Disaster Emergency Committee (DEC).

Photos by: Teri Pengilley, Jon Bugge and Researcher Team DEPSOS.

Published by:Save the Children UKJl. Pejaten Barat No. 8 Jakarta, Indonesia and

Ministry of Social Affairs (DEPSOS)Jl. Salemba Raya No. 28 Jakarta, Indonesia

© Save the Children and Depsos RI

ISBN: 979-15511-1-1

This publication may be freely used, quoted, reproduced, translated or distributed in part or in full by any non-profit organisation provided copyright is acknowledged and no fees or charges are made.

A Rapid Assessment of Children’s Homes in post-Tsunami Aceh �

ForewordDirector General for Social Services and Rehabilitation,

DEPSOS

This research represents a part of the Government’s efforts, in particular from the Ministry of Social Affairs, to respond to the protection needs of children that arose as a result of the Tsunami in Aceh.

Since the adoption of the Government of Indonesia’s Policy on Separated, Unaccompanied and Single-parent Children affected by Emergency Situations on 11 February 2005 which was followed up by the establishment of a Family Tracing and Reunification Network (FTR Network), it became quickly clear that a number of child victims of the Tsunami were being placed in the Children’s Homes and the religious boarding schools (Dayah) across the NAD Province. This research provides us with a picture of the situation of these children which is significant and which completes the picture of the situation of children separated as a result of the Tsunami that are in the displaced camps and those living within families.

This research shows that reliance on institutional care is still very strong in Aceh. At the same time, the families of the child victims of the Tsunami which were identified under the Policy as the first and best option for the care of these children are still facing many challenges and as a result many parents and relatives feel compelled to place their child in an institution. The findings of this research underline the importance of strengthening support to families, including in post emergencies situations, in order that parents are able to play fully their role in the care and protection of their children. In line with the reform of the social homes currently undertaken by the Ministry of Social Affairs which is aiming to transform these institutions into less residential and more open centres for family support, the data and analsyis provided on the situation of the Children’s Homes in Aceh in this report will be invaluable to support our work to move towards this aim.

The collaboration between various agencies involved in this research including the Ministry of Social Affairs, the Department of Social Services for NAD Province, Save the Children and Unicef is a positive example that will be followed up in the future. I very much appreciated the collaboration and would like to thank warmly the Department of Social Services in NAD, Save the Children and Unicef for enabling this research to take place. In particular, I would like to thank Florence Martin and Tata Sudrajat of Save the Children UK for carrying out this reseach and working with us in the past year.

Jakarta, 25 July 2006DEPSOS RI

D�rector General for Soc�al Serv�ces and Rehab�l�tat�on

Makmur Sunus�, Ph.DNIP. 170010847

�� A Rapid Assessment of Children’s Homes in post-Tsunami Aceh

ForewordCountry Director, Save the Children UK

The December 2004 earthquake and Tsunami had a devastating impact on the lives of children in Aceh and in a number of countries bordering the Indian Ocean. It literally swept their world upside down, broke down their communities, their homes and their schools. For thousands of them, it took away the people who loved and cared for them, a parent, a brother or sister, a grandparent, friends or relatives. For these boys and girls, the rebuilding of a house, returning to school, beginning to learn to play again, are just the first tentative steps towards regaining a world where they feel cared for, protected, loved and where their contribution is sought and valued, a world that they can recognise as their own. For over 2000 children though, as this report shows, the lives they had before this disaster is all but gone. Due to the loss of one or both primary carers and the impact of the Tsunami on the economic and social capacity of their families to care for them, these children have found themselves in one of more than 200 children’s homes in Aceh. As a result they will live away from their remaining families, communities and societies and in a context which, research across the globe has shown to be less than ideal for the well-being, development and future outcomes of children.

The situation in Aceh post-Tsunami poses an enormous challenge to us all. The extraordinary outpouring of generosity that has led so many to contribute across the globe and within Indonesia itself to support these children and their families has also encouraged the building and financing of yet more institutions. As a result the relatives and families who may otherwise have sought to care for these children themselves are choosing to place their children in institutions that are seen by them to be able to provide far more than a struggling family could ever provide, even though that is far from being the case in reality. Instead these children are being cut away from the very environment that is crucial for them to recover from the devastating losses of that disaster, to regain their place within the families and communities where they must grow and develop in order to flourish and learn to become full and participating members of their society.

The Government of Indonesia took an essential step in the aftermath of this disaster by adopting the Policy on Separated, Unaccompanied and Single-parent Children affected by Emergency Situations (2005) which clearly stated that “every effort must be undertaken so as to ensure that children are able to stay with their families and communities.” By recognising the fundamental importance of families to the care and protection of children, it emphasised that the placement in institutions should be a last resort and that a range of support should be given to single parents left to care alone for their children or extended families willing to step in to care for them. This crucial policy is now at risk in the face of the daunting challenges facing many families in Aceh well over a year after the disaster. We now see a dangerous emphasis on assistance through institutions with resources which should help families care for their children being diverted instead to help institutions.

A Rapid Assessment of Children’s Homes in post-Tsunami Aceh ��

Save the Children hopes that this research undertaken jointly with the Ministry of Social Affairs will support efforts to rethink how best to support children and families who are facing serious care challenges. We hope that, through better understanding of what is really happening to these children and how they come to be placed in institutions, we are able to work together to ensure that a generation hit by such an unprecedented tragedy is able to move forward to rebuild families and communities to which all children firmly belong and which are crucial to the well-being of Acehnese society. We thank the Ministry of Social Affairs and in particular Mr Makmur Sunusi for his support and leadership in this endeavour.

Jakarta, 25 July 2006Save the Ch�ldren UK

Country D�rector

Kev�n Byrne

�v A Rapid Assessment of Children’s Homes in post-Tsunami Aceh

Table of Content

Executive Summary ix

Introduction 1 Part I. The Research and its Context 1A. The �mpact of the Tsunam� on ch�ldren and the�r fam�l�es 1B. Res�dent�al care �n Indones�a 6C. The research �n Aceh (Nanggroe Aceh Darussalam Prov�nce) 10

Part II. The Situation of the Children’s Homes (Panti Asuhan Anak) 19A. Types of Ch�ldren’s Homes 20B. Number of Ch�ldren’s Homes 21C. Year of Establ�shment 23D. Ownersh�p Status 24E. Status of Reg�strat�on 26F. The F�nanc�al S�tuat�on of the Ch�ldren’s Homes 27G. New Ch�ldren’s Homes establ�shed s�nce Tsunam� 30H. Ch�ldren’s Homes damaged or destroyed �n the Tsunam� 37I. Ch�ldren’s Homes no longer operat�ng 38J. Issues encountered about the Ch�ldren’s Homes, the�r pract�ces and care prov�s�on. 39 Part III. The Situation of the Children in the Homes 43A. Number and Locat�on 44B. Age Range 47C. School�ng and Level of Educat�on 49D. Parental Status 50E. D�sab�l�ty 52F. Number of S�bl�ngs 53G. Home Locat�on 54H. Dec�s�on Maker for Placement 56I. T�m�ng of Placement �n the Ch�ldren’s Homes 57J. Length of placement �n the Ch�ldren’s Homes 58K. Frequency of Meet�ng between the Ch�ld and Fam�ly 59L. L�kel�hood of Return to Parent(s)/Fam�ly. 61M. Ch�ldren hav�ng already returned to the�r Parent(s) 63N. Reg�strat�on of ch�ld v�ct�ms of the Tsunam� through FTR 63

Part IV. Key Issues Arising from the Research 65A. The �mpact of the Tsunam� on the care s�tuat�on of ch�ldren 65B. The �ncrease �n Ch�ldren’s Homes and the �mpact of recru�tment pract�ces 68C. A crossroad for the care of vulnerable ch�ldren �n Aceh 69D. The purpose of the Ch�ldren’s Homes �n the post-Tsunam� context 70

A Rapid Assessment of Children’s Homes in post-Tsunami Aceh v

Part V. Recommendations 75

References 78

Appendix. Tables of Data 81A.1. L�st of Ch�ldren’s Homes �n NAD 82A.2. Breakdown of Ch�ldren per Home 89A.3. L�st of Homes not yet reg�stered 94A.4. Breakdown by Age 95A.5. Breakdown by Educat�on Status and Level 100A.6. Breakdown by Parental Status 104A.7. Breakdown by D�sab�l�ty 106A.8. Breakdown by S�bl�ngs and Home Locat�on 108A.9. Breakdown of Dec�s�on Maker for Placement 110A.10. Breakdown by Length of Placement and Fam�ly Meet�ngs 115A.11. Breakdown by Reun�f�cat�on and Poss�ble Trac�ng Needs 119

v� A Rapid Assessment of Children’s Homes in post-Tsunami Aceh

Tables and Graphs

Table 1 Number of Homes car�ng for ch�ldren per D�str�ct �n NAD Prov�nce. 21Table 2 Number of ch�ldren be�ng cared for, �nclud�ng Tsunam� and confl�ct v�ct�ms, per type of �nst�tut�on and per D�str�ct/Mun�c�pal�ty. 42Graph 1 Year of establ�shment of the Ch�ldren’s Homes �n NAD Prov�nce. 23Graph 2 Ownersh�p status of the Ch�ldren’s Homes �n NAD Prov�nce 24Graph 3 Number of ch�ld v�ct�ms of the Tsunam� and ch�ld v�ct�ms of the confl�ct �n

Ch�ldren’s Homes �n NAD Prov�nce. 46Graph 4 Age breakdown for ch�ld v�ct�ms of the Tsunam� 48Graph 5 Level of Educat�on of the ch�ld v�ct�ms of the Tsunam� 49Graph 6 Status of both parents of ch�ld v�ct�ms of the Tsunam� 50Graph 7 Types of D�sab�l�ty of ch�ld v�ct�ms of the Tsunam� 53Graph 8 Number of s�bl�ngs among ch�ld v�ct�ms of the Tsunam� �n the same Ch�ldren’s Homes. 54Graph 9 Locat�on of Home of ch�ld v�ct�ms of theTsunam� �n relat�on to Ch�ldren’s

Homes 55Graph 10 Dec�s�on maker for placement �n the Ch�ldren’s Homes 56Graph 11 T�m�ng of the placement �n the Ch�ldren’s Homes 57Graph 12 Length of placement of ch�ld v�ct�ms of the Tsunam� �n the Ch�ldren’s Homes 58Graph 13 Frequency of Meet�ng between ch�ld v�ct�ms of the Tsunam� and the�r

parent(s) 60Graph 14 L�kel�hood of Return to Parent(s)/Fam�ly. 62

A Rapid Assessment of Children’s Homes in post-Tsunami Aceh v��

Acknowledgments

Th�s research was carr�ed out by Florence Mart�n (Child Protection Advisor) and Tata Sudrajat (Child Protection Specialist) from Save the Ch�ldren UK who are based �n the M�n�stry of Soc�al Affa�rs.

The data collect�on was carr�ed out by a team from the M�n�stry of Soc�al Affa�rs based �n Aceh w�th the support of Un�cef. The team for the f�rst phase of data collect�on was composed of Benny Sujanto, Dud� H�dajat, Ade Herd�at, S�g�t W�caksono, Abu Thal�b, Bambang Puj�antoro, Ar�fudd�n, Agus Sal�m, Gungun Gunawan, Ahmad Sah�d�n, D�ana W�yant�, and Yad� Tr�ad�. The team for the second phase of data collect�on was composed of Dudy H�dajat, S�g�t W�caksono, Abu Thal�b, Ahmad Sah�d�n, and Ade Herd�at. Mukhl�sudd�n Ilyas from the Save the Ch�ldren team �n Banda Aceh also completed data collect�on from Banda Aceh and S�meulue. Th�s research would not have been poss�ble w�thout the efforts and pat�ence of all these �nd�v�duals who worked to reach all of the ch�ldren’s homes across NAD Prov�nce, often under d�ff�cult c�rcumstances. We would l�ke to thank them all for the�r �mportant work w�thout wh�ch th�s research would not have been poss�ble.

In that regard we would also l�ke to thank the managers of these �nst�tut�ons who opened the�r doors to the teams and prov�ded us w�th �mportant �nformat�on.

We would l�ke to g�ve part�cular thanks to Peter Sane of Save the Ch�ldren UK who has prov�ded us w�th both support and useful suggest�ons for th�s report and Set�awan Cahyo Nugroho of Save the Ch�ldren �n Banda Aceh who has fac�l�tated throughout the process of data collect�on �n the f�eld.

From our partners �n the M�n�stry of Soc�al Affa�rs, we would l�ke to thank Mr Han�f Asmara and Mrs Far�da from the Department of Soc�al Affa�rs �n NAD who prov�ded support and fac�l�tated th�s research �n the f�eld and Mr Nahar �n Jakarta who prov�ded overall coord�nat�on to the DEPSOS teams �n Aceh.

F�nally, th�s research would not have been poss�ble w�thout the support and d�rect�on prov�ded by Mr Makmur Sunus�, D�rector General for Soc�al Serv�ces and Rehab�l�tat�on �n the M�n�stry of Soc�al Affa�rs and we thank h�m warmly for that.

v�� A Rapid Assessment of Children’s Homes in post-Tsunami Aceh

Acronyms and Abbreviations

BBM Bahan Bakar M�nyak (Fuel) – (Referring to a financial support scheme that was established to compensate for a decrease in Governmental subsidy for fuel)

BPS B�ro Pusat Stat�st�k (Central Bureau of Statistics)

BRR Badan Rehab�l�tas� dan Rekonstruks� (The Bureau for Rehabiltation and Reconstruction, responsible for overall coordination of the reconstruction effort in NAD Province)

Dana dekon Dana dekonsentras� dar� pusat ke prop�ns� (Deconcentration fund from the central government to the provincial government)

Dayah Name for Pesantren �n Aceh, Islamic Religious Boarding Schools

DEPAG Departemen Agama (Ministry of Religious Affairs)

DEPDIKNAS Departemen Pend�d�kan Nas�onal (M�n�stry of Nat�onal Educat�on)

DEPSOS Departemen Sos�al (Ministry of Social Affairs)

DINSOS D�nas Sos�al (Department of Social Affairs at the Provincial level)

FTR Network Family Tracing and Reunification Network (Jar�ngan Lembaga untuk Penelusuran dan Penyatuan Keluarga)

Kanw�l Depag Kantor W�layah Departemen Agama (Provincial Office of the Ministry of Religious Affairs)

KHA/CRC Konvens� Hak Anak (Convention on the Rights of the Child)

KPP Kementr�an Pemberdayaan Perempuan (The Ministry for Women’s Empowerment)

NAD Nanggroe Aceh Darussalam, the off�c�al name for the Autonomous Prov�nce of Aceh

ORSOS Organ�sas� Sos�al (NGO and Community Based Organization)

PSAA/PA Pant� Sos�al Asuhan Anak/Pant� Asuhan (Children’s Homes or Foster Homes sometimes referred to as Orphanages)

PSBR Pant� Sos�al B�na Remaja (Vocational training centre for teenagers who have dropped out of school)

PSM Pekerja Sos�al Masyarakat (Community Social worker)

SATKORLAK PBP Satuan Koord�nas� Pelaksana Penangulangan Bencana dan Penanganan Pengungs� d� T�ngkat Prop�ns� (Coord�nat�on Unit for Disaster and IDP Management)

SIK Surat Iz�n Keg�atan (Operational Authorization Letter)

SPAN Sensus Penduduk Aceh dan N�as (The post-Tsunami Population Census in NAD and Nias) 2005

A Rapid Assessment of Children’s Homes in post-Tsunami Aceh �x

Execut�ve SummaryBackground

In the �mmed�ate aftermath of the December 2004 Tsunam� d�saster, �t was feared that an except�onally h�gh number of ch�ldren had become separated and that most of those were orphaned. No actual f�gure was ava�lable on the number of ch�ldren who had lost one or both parents but many news med�a reported on the tens or even hundreds of thousands of ‘Tsunam� orphans’. Th�s, �n turn, led to great publ�c concern �n support of these ch�ldren. Government, and non-government, agenc�es set to work to prov�de a reg�strat�on and trac�ng system for ch�ldren who were unaccompan�ed or look�ng for the�r fam�ly. The Fam�ly Trac�ng and Reun�f�cat�on Network (FTR)1 was establ�shed and �t reg�stered 2831 ch�ldren unaccompan�ed or separated from the�r parents (January 2005-May 2006). About 700 of these had lost both parents and another 1301 d�d not know the whereabouts of both parents strongly �nd�cat�ng that they are also orphans.2

1 The members of the FTR Network are the M�n�stry of Soc�al Serv�ces (DEPSOS), the M�n�stry of Women’s Empowerment (KPP), the prov�nc�al Department of Soc�al Affa�rs (DINSOS), UNICEF, Save the Ch�ldren, ICRC, Card�/IRC, LCO, Muhammad�yah, Pusaka, and the Ch�ld Fund.2 FTR Database f�gures as of 15 May 2006. (DINSOS-Save the Ch�ldren)

x A Rapid Assessment of Children’s Homes in post-Tsunami Aceh

The government responded dec�s�vely to concerns that ch�ldren were be�ng separated and sent away from the�r commun�t�es and fam�l�es, �nclud�ng poss�bly through traff�ck�ng. It �ssued a range of dec�s�ons to freeze all adopt�ons �ntra- or �nter-country, and to prevent the transfer of ch�ldren abroad. It promulgated a brand new Policy on Separated Children, Unaccompanied Children and Single-parent Children affected by Emergency Situations3. The pol�cy states clearly that “ch�ldren rece�ve the best care when they are �n a fam�ly env�ronment and rema�n �n the�r commun�ty, culture and rel�g�on”. It h�ghl�ghts that �n emergenc�es, separat�on from fam�ly and commun�ty should be prevented, support for fam�ly based care pr�or�t�sed, and �nst�tut�ons should only ever be used as a last resort.

Desp�te th�s �mportant pol�cy, �t became clear that many new Ch�ldren’s Homes (Panti Sosial Asuhan Anak) were be�ng bu�lt �n post Tsunam� Aceh and that many ex�st�ng �nst�tut�ons were rece�v�ng s�gn�f�cant numbers of new arr�vals. It became cruc�al to understand how the d�saster had affected the care s�tuat�on of ch�ldren �n Aceh. Were ch�ldren be�ng placed �n �nst�tut�ons as a result of the d�saster and �f so, what were the c�rcumstances of those placements? In add�t�on, what �mpact d�d the Tsunam� have on the Ch�ldren’s Homes themselves - the�r populat�on, funct�on, f�nances, and the�r ways of operat�ng?

The Research

The M�n�stry of Soc�al Affa�rs (DEPSOS) recogn�sed that �t had the respons�b�l�ty to ensure that the whereabouts and s�tuat�on of separated ch�ldren �n Aceh was fully known and that the�r needs were assessed. After the Tsunam� �t has prov�ded d�rect support to the Department of Soc�al Welfare (DINSOS) �n Aceh (whose capac�ty was weakened by the Tsunam�). W�th support from Save the Ch�ldren, DEPSOS dec�ded to carry out a rap�d assessment of all Ch�ldren’s Homes �n Aceh w�th a part�cular focus on Tsunam� affected ch�ldren.

The assessment was carr�ed out between December 2005 and March 2006. The research, methodology and gu�del�nes were des�gned by two Save the Ch�ldren protect�on adv�sers seconded to the D�rectorate of Ch�ldren’s Serv�ces �n DEPSOS. The research was carr�ed out by a team of DEPSOS soc�al workers deployed to Aceh w�th f�nanc�al support from UNICEF. In add�t�on, the soc�al workers were supported, where they were st�ll act�ve, by the PSM (Pekerja Sosial Masyarakat), a network of commun�ty soc�al workers.

3 Indones�an Government Pol�cy on Separated Ch�ldren, Unaccompan�ed Ch�ldren and S�ngle-parent Ch�ldren affected by Emergency S�tuat�ons. DEPSOS, 11 February 2005.

A Rapid Assessment of Children’s Homes in post-Tsunami Aceh x�

Key findings

A. The situation of the children

1. As of March 2006 there were 207 active Children’s Homes in Aceh caring for 16,234 children, (9,567 boys and 6,667 girls or almost 60% boys and 40% girls). Th�s �ncludes both Ch�ldren’s Homes often referred to as ‘neglected Ch�ldren’s Homes’ or ‘orphanages’ (Pant� Sos�al Asuhan Anak) and homes for the D�sabled that care for ch�ldren (Pant� Sos�al Penyandang Cacat). (193 Neglected Ch�ldren’s Homes and 14 Homes for the D�sabled)

2. A further 10 Children’s Homes were found not to be active any longer at the t�me of the research.

3. The total number of children in these institutions who are victims of the Tsunami is 2,589 or 16% of the total populat�on �n the homes. Of those 1,470 are boys and 1,119 are g�rls. (57% boys and 43% g�rls)

4. The overwhelming majority (more than 85%) of child victims of the Tsunami in the Children’s Homes still have at least one parent alive. Over 42% of the ch�ldren st�ll have both parents and 43% have one parent al�ve. Th�s data �s s�gn�f�cant because �t shows that contrary to frequent reports �n the med�a that the Tsunam� has resulted �n very h�gh numbers of orphans, the number of real orphans who have been placed �n the Ch�ldren’s Homes �s actually much smaller. Only 10% of the Tsunam�-affected ch�ldren �n the homes are real orphans w�th another 4.5% who st�ll do not know the whereabouts of the�r parents.

5. Among Tsunam� affected ch�ldren �n the homes that have lost one parent, there �s a h�gher percentage of ch�ldren who are fatherless (yat�m) (33.15%) than ch�ldren who are motherless (p�atu) (9.67%).

6. The age of ch�ld v�ct�ms of the Tsunam� �n the Ch�ldren’s Homes ranges from a few months old to above 18 years old. The biggest group is aged 13 – 15 (37.25%), followed by the 6 – 12 years group (34.76%), the 16-18 group (22.01%) and above 18 years of age (5.25%). The 0-5 year old group �s by far the smallest, at 0.73%.

7. Of 33 ch�ldren �n the homes for the d�sabled �n Aceh that were �dent�f�ed as v�ct�ms of the Tsunam�, 30 had an actual d�sab�l�ty and 3 had no recorded d�sab�l�ty. Only one child was identified as disabled as a result of the Tsunami.

8. The overwhelming majority of child victims of the Tsunami were placed in the Children’s Home by their immediate family (97.54%). Parents (one or both) were most often respons�ble for the dec�s�on to place the ch�ld �n the Home and th�s was followed by other fam�ly members or relat�ves.

x�� A Rapid Assessment of Children’s Homes in post-Tsunami Aceh

9. Over 50% of the children were placed in homes immediately after the disaster but almost the same number again were placed some time after the disaster itself (47%). Th�s �nd�cates the �nterplay of d�fferent factors �n the dec�s�on to place a ch�ld �n the �nst�tut�on, w�th later placements more l�kely to be the result of the �mpact of the d�saster on carers and fam�l�es’ ab�l�ty to care for a ch�ld due to loss of earn�ngs, employment or hous�ng. If taken w�th the f�nd�ngs wh�ch show that the overwhelm�ng major�ty of ch�ld v�ct�ms of the Tsunam� �n the Ch�ldren’s Homes st�ll have at least one parent, we can conclude that secondary separation, or separat�on as a result of the �mpact of the d�saster on the capac�ty to care, rather than loss of carers, �s a major �ssue �n post- Tsunam� Aceh.

10. The major�ty of ch�ld v�ct�ms of the Tsunam� were placed �n the Ch�ldren’s Homes w�th�n 3 months of the d�saster, and over 75% of children had already been there for over 10 months, at the t�me of the research. Th�s t�meframe �nd�cates that the�r placement was not just a short term cr�s�s response but a longer term care dec�s�on.

11. The overwhelming majority of child victims of the Tsunami in the homes are presently attending school (over 98%). All ch�ldren �n the regular Ch�ldren’s Homes attend local schools �n the commun�ty. Ch�ldren placed �n the Dayah/Islam�c board�ng schools that also run a Ch�ldren’s Home attend school w�th�n that �nst�tut�on.

12. Over 70% of ch�ldren were placed �n Ch�ldren’s Homes relat�vely close to the�r or�g�nal home locat�on. However, a s�gn�f�cant number of ch�ldren were placed �n �nst�tut�ons outs�de of the d�str�ct of home locat�on. Aceh Besar and Banda Aceh are part�cularly noteworthy �n that regard as the Ch�ldren’s Homes �n both D�str�cts care for s�gn�f�cantly h�gh numbers of ch�ldren from other D�str�cts. Cons�der�ng those both Aceh Besar and Banda Aceh were among those areas worst affected by the Tsunam�, there can be no doubt that the h�gh number of new �nst�tut�ons that have been bu�lt s�nce the Tsunam� �n those two D�str�cts (10 out of 17) must have had an �mpact on the�r ab�l�ty to attract ch�ldren.

13. The overwhelming majority of child victims of the Tsunami in the Children’s Homes have had at least one meeting with their parents. 50% have had one meet�ng and 46% have had more than one meet�ng.

14. Once �n the �nst�tut�ons, ch�ldren have tended to rema�n there. Wh�le the relat�onsh�p between ch�ld v�ct�ms of the Tsunam� and the�r parents and fam�l�es generally seems to be ma�nta�ned, the l�kel�hood of these ch�ldren return�ng home was seen to be much more remote. Only 8 cases were �dent�f�ed as be�ng �n process for an eventual return (0.52%). There is a widespread expectation that children placed in Children’s Homes should remain there until completion of secondary education.

A Rapid Assessment of Children’s Homes in post-Tsunami Aceh x��

B. The situation of the Children’s Homes

1. Desp�te the ex�stence of a few Ch�ldren’s Homes �n Aceh as far back as the 1930s, the research shows that the major�ty of �nst�tut�ons were establ�shed relat�vely recently. Over 90% of Children’s Homes were established after 1980 and 43% of those after 2000.

2. Th�s trend has become part�cularly acute s�nce the Tsunam� w�th 17 new Children’s Homes being established in 2005 and two more �n the process of be�ng establ�shed at the t�me of the research. These were expected to be up and runn�ng by 2006. In add�t�on, a number of organ�sat�ons have reported plans for the bu�ld�ng of many more �nst�tut�ons for ‘Tsunam� orphans’ and neglected ch�ldren or expand�ng the capac�ty of the�r current �nst�tut�on.

3. The vast majority of Children’s Homes (95%) are owned and run by private organisations �nclud�ng NGOs, Commun�ty Based Organ�sat�ons (CBOs) and rel�g�ous organ�sat�ons. Only 5% are owned and run by the Government.

4. The research �dent�f�ed a number of �ssues relat�ng to the reg�strat�on process, �n part�cular that 35 of the Children’s Homes identified by the research did not figure in the DINSOS data. Of these, 18 Ch�ldren’s Homes were establ�shed pr�or to 2005 and 17 newly establ�shed s�nce the beg�nn�ng of 2005.

5. In add�t�on, there �s no system for the reg�strat�on of the �nd�v�dual institution. Those who establ�sh a Ch�ldren’s Home do not need to reg�ster as long as they have a SIK number (Surat Iz�n Keg�atan or Letter of Author�sat�on) show�ng that the�r parent organ�sat�on �s reg�stered as a soc�al organ�sat�on. 32 Children’s Homes did not possess the registration number (SIK) from the Prov�nc�al DINSOS department �n Aceh.

6. In the �mmed�ate post Tsunam� context, the enormous human�tar�an outpour�ng com�ng �n w�th a range of new donors seek�ng to d�sburse considerable sums of aid has been a major factor in driving up the number of new Children’s Homes being established. Substant�al new fund�ng has been �njected �nto �nst�tut�onal care responses �n Aceh as a result of the Tsunam� both from the Government and from non governmental organ�sat�ons, local and �nternat�onal.

7. In add�t�on to funds that they rece�ve through the�r own organ�sat�ons or through pr�vate donat�ons, the Ch�ldren’s Homes also rece�ve government fund�ng through the Deconcentration Fund started �n 2000 follow�ng the decentral�-sat�on process and the Subsidy Program for Additional Food Costs for Social Care Institutions wh�ch �s part of the government compensat�on for the r�se �n the pr�ce of fuel (BBM).

x�v A Rapid Assessment of Children’s Homes in post-Tsunami Aceh

In the post Tsunam� context, the Ch�ldren’s Homes are also now rece�v�ng cons�derable f�nanc�al ass�stance from the Badan Rehabilitasi dan Rekonstruksi (BRR) wh�ch �s the government’s coord�nat�ng agency for the reconstruct�on of Aceh. Children’s Homes received more than IDR 20 billion (US$ 2.2 million) in 2005, another IDR 14 b�ll�on �n (US$ 1.56 m�ll�on) �n 2006, and are due to rece�ve another IDR 15 b�ll�on (US$ 1.67 m�ll�on) for the year 20074. This represents a four-fold increase in financial aid to Children’s Homes from the Government. Th�s fund�ng �s to support the �nternal development of the �nst�tut�ons, �nclud�ng rehab�l�tat�on, operat�onal programmes, manage-ment, �ncome generat�ng act�v�t�es, school�ng equ�pment and food ass�stance.

8. Wh�le the level of ass�stance depends on the source of fund�ng, most fund�ng �s l�nked to the number of ch�ldren �n the Ch�ldren’s Homes, part�cularly ch�ldren affected by the Tsunam�. As a result, the major�ty of Ch�ldren’s Homes have developed reg�sters �dent�fy�ng these ch�ldren together w�th fund�ng proposals for donors. Others are propos�ng bu�ld�ng Ch�ldren’s Homes w�th larger capac�ty on the bas�s that they w�ll be able to f�nd the ch�ldren.

9. There �s clear �nd�cat�on that th�s results �n damaging recruitment practices as no assessments seem to have been carried out on the needs of children and the�r fam�l�es or alternat�ve ways of support�ng ch�ldren w�th�n the�r fam�l�es and commun�t�es. Instead �nst�tut�ons have every reason to be go�ng out to recru�t ch�ldren �n order to rece�ve the a�d, and to keep these ch�ldren longer term w�th�n these �nst�tut�ons, whether these ch�ldren have rema�n�ng parents or whether they could actually be supported w�th�n the�r fam�l�es.

The f�nd�ngs from th�s research have clear �mpl�cat�ons for the Government and the agenc�es who are work�ng to support the care of ch�ldren w�th�n fam�l�es as they show that a ser�ous challenge to these goals l�es ahead �f more �s not done to strengthen the capac�ty of fam�l�es, �nclud�ng s�ngle parent fam�l�es, to care for the�r ch�ldren �n these post Tsunam� phase.

Aceh �s at a crossroad �n terms of how �t responds to the challenge of car�ng for �ts most vulnerable ch�ldren. These ch�ldren have lost much �n those d�sasters but st�ll have fam�l�es, relat�ves and commun�t�es who, �n many cases, are w�ll�ng to take respons�b�l�ty and care for them �f suff�c�ent support and appropr�ate recogn�t�on of the�r �mportant role �s ava�lable. The quest�on now �s whether th�s support �s go�ng to be made ava�lable or whether �t w�ll cont�nue to benef�t �nst�tut�ons rather than ch�ldren.

4 Informat�on prov�ded by the Soc�al D�rector of the BRR. Mr De Ronn�e on the 9 August 2006 �n Banda Aceh.

A Rapid Assessment of Children’s Homes in post-Tsunami Aceh xv

Recommendations

1. Intervent�ons d�rectly target�ng fam�l�es who are fac�ng challenges �n the care of the�r ch�ldren should be pr�or�t�sed, �n l�ne w�th the Government’s stated pol�cy on ch�ldren affected by emergency s�tuat�ons, w�th part�cular focus on support�ng s�ngle parent fam�l�es and extended fam�l�es that are car�ng for Tsunam�- affected ch�ldren.

2. Fund�ng by the Government and pr�vate donors should be sh�fted away from support�ng �nst�tut�onal solut�ons and �nstead support fam�ly and commun�ty based �ntervent�ons that are susta�nable, �nclud�ng ensur�ng fam�l�es can afford full educat�on costs for the�r ch�ldren unt�l complet�on of stud�es.

3. The BRR should cons�der rev�ew�ng �ts fund�ng of Ch�ldren’s Homes and should pr�or�t�se d�rect fam�ly support �ntervent�ons for fund�ng. It should also ensure that �ts ex�st�ng fund�ng to the Ch�ldren’s Homes �s be�ng mon�tored closely and �ndependently to ensure that �t benef�ts the ch�ldren �n those �nst�tut�ons.

4. No new Ch�ldren’s Home should be bu�lt �n Aceh w�thout pr�or assessment of clear needs for such an �nst�tut�on that cannot be met otherw�se. The assessment should be carr�ed out jo�ntly by DINSOS and DEPSOS and should be �n l�ne w�th the stated government pol�cy of encourag�ng fam�ly-based care whenever poss�ble.

5. Ex�st�ng plans for the development of new Ch�ldren’s Homes or the expans�on of ex�st�ng ones should be rev�ewed s�m�larly by a jo�nt DINSOS/DEPSOS assessment team.

6. The s�tuat�on of the youngest Tsunam� affected ch�ldren �n the Ch�ldren’s Homes, part�cularly the under 5, should be rev�ewed urgently by DINSOS and alternat�ve fam�ly based care outs�de of the Homes should be sought for these ch�ldren.

7. D�scuss�ons should take place �mmed�ately between DEPSOS, DINSOS and the managers of Ch�ldren’s Homes to d�scuss recru�tment pract�ces and put �n place a case rev�ew system w�th the a�m of support�ng eventual return to fam�ly care or, when that �s not �n the best �nterest of the ch�ld, to cons�der alternat�ve fam�ly care solut�ons. The ch�ld’s own w�shes �n relat�on to care arrangements should be sought and g�ven ser�ous cons�derat�on.

8. Regular contact between ch�ldren and the�r parents, fam�l�es and other relat�ves should be encouraged and fac�l�tated �nclud�ng schemes wh�ch support frequent home v�s�ts and fac�l�tate commun�cat�on and transport.

9. The FTR Network should follow up on the poss�ble trac�ng needs of ch�ldren �dent�f�ed �n th�s research and support, whenever poss�ble, fam�ly reun�f�cat�on.

xv� A Rapid Assessment of Children’s Homes in post-Tsunami Aceh

10. DINSOS should develop an effect�ve and central�sed reg�strat�on and accred�tat�on system for each Ch�ldren’s Home �n add�t�on to the ORSOS reg�strat�on process.

11. DEPSOS and DINSOS should put �n place a data collect�on system to ensure that data from the D�str�cts on all Ch�ldren’s Homes �s ava�lable and updated on a 6 monthly bas�s. Th�s would also ensure trends �n relat�on to care placements are mon�tored effect�vely.

12. Updated and accurate data on the s�tuat�on of ch�ldren affected by the Tsunam� �nclud�ng number k�lled, d�splaced, who have lost carers, l�v�ng w�th extended fam�l�es, �n school, who work, �n res�dent�al care d�saggregated by gender and age should be comp�led by the relevant government agenc�es. Such data should be made publ�c �n order to ensure that �ntervent�ons are targeted effect�vely.

13. The government’s Policy on Separated Children should be d�ssem�nated more w�dely and d�scuss�ons should take place w�th�n DEPSOS, DINSOS and other relevant government agenc�es �nclud�ng the M�n�stry of Educat�on, of pract�cal steps to be taken towards �ts �mplementat�on.

14. A major publ�c awareness campa�gn on the �mportance of a fam�ly env�ronment to the wellbe�ng and r�ghts of ch�ldren should be developed by the government together w�th the agenc�es work�ng w�th�n the FTR Network.

15. More comprehens�ve research should be undertaken to assess the qual�ty of care prov�ded for ch�ldren �n �nst�tut�ons �n Aceh �nclud�ng ensur�ng that m�n�mum standards are followed. A mon�tor�ng system should be developed to ensure regular assessment of these �nst�tut�ons and fund�ng and accred�tat�on should be l�nked to the �nst�tut�ons prov�d�ng qual�ty care for ch�ldren.

16. DEPSOS should ensure that �ts standards for the operat�on of ch�ld care �nst�tut�ons are understood and �mplemented �n Aceh, �n part�cular �t should ensure that the Ch�ldren’s Homes beg�n to play the�r role as outreach �nst�tut�ons to support ch�ldren and the�r fam�l�es rather than operat�ng purely as res�dent�al care �nst�tut�ons.

17. The �mportant l�nks between the placement of ch�ldren �n Ch�ldren’s Homes and educat�on should be analyzed further. Research should be undertaken to understand how the var�ous f�nanc�al support schemes for educat�on such as Operat�onal A�d to Schools (Bantuan Operasional Sekolah BOS) �mpact on the capac�ty of the most vulnerable fam�l�es to access educat�on for the�r ch�ldren.


Introduction InDecember2005,theMinistryofSocialAffairsinJakarta(DEPSOS)incollaborationwith theDepartmentofSocialAffairs inAceh (DINSOS)begana rapidassessmentofall Children’s Homes (Panti Asuhan Anak) in the Province. This research was carriedouttogetherwithSavetheChildrenandwithfinancialsupportfromUNICEF.TheaimoftheRapidAssessmentwasprimarilytounderstandtheimpactoftheTsunamionthecaresituationofchildrenandparticularlytoidentifychildrenwhohadbeenplacedintheinstitutionsasaresultoftheTsunami.NosystematictracingactivitiesorregistrationhadpreviouslybeencarriedintheChildren’sHomesdespitethefactthatitwassuspectedthatmanyseparatedchildrenwerebeingcaredforinthoseinstitutions.Inaddition,nodatawasavailableaboutthenumberandtypesofinstitutionsthathadbeenbuiltordestroyedsincetheTsunamiandearthquakesdevastatedgreatpartsofAcehinDecember2004.

UnderstandingtheimpactofthisdisasteronthecaresituationofchildreninAcehiscrucialtoensurethatinterventionstoprotecttherightsofchildrenareeffectivelytargetedaswellastosupportresponsesthatstrengthenthesechildren’srighttogrowanddevelopinasecureandlovingenvironment.Aswithalldisasters,theparticularcontextinwhichtheyoccuroftendeterminesinmanywaysthetypesofresponsesthatarereliedon.IfwearetrulytounderstandtheimpactthatthisTsunamihashadonthecaresituationofchildren,

2 A Rapid Assessment of Children’s Homes in post-Tsunami Aceh

wealsoneedtoconsidercareresponsesinthebroadercontextofcareandprotectioninIndonesia.ThisissomewhatdifficultinthiscontextduetotheclearlackofsystematicdataonchildreninformalcareinIndonesiaandparticularlyininstitutionalcare.ThisrapidassessmentcouldnotbegintoremedythatbutitishastriedtoprovidesomeinsightsontheuseofresidentialcareinthisparticularprovinceofIndonesiaandidentifysomeofthebroaderchallengesandconcernsthatcouldbediscernedfromthisinitialassessment.ItclearlyisonlyafirststeptowardsamuchneededthoroughassessmentoftheformalcaresysteminAcehandintherestofIndonesia.

Inaddition,whilethisresearchfocusedonChildren’sHomes,carefacilitiesthathavebeenbuiltspecificallywiththepurposeofcaringforchildren,itwasclearlyacknowledgedfromthestartthatitwouldneedtobefollowedbyasimilarassessmentoftheDayahs,thereligiousboardingschoolsinAceh.WhiletheseinstitutionsplayaverydifferentroleandhavedifferentgoalsandstructuresthantheHomes,astheyarefunctionprimarilytoprovideeducationforchildren,theyalsofulfilacrucialcareroleinIndonesiaandparticularlyintheAcehcontext.ThereisnodoubtthattheDayahsarethefirstchoiceforfamiliesinAcehwhofaceparticularchallengesinthecareandprotectionoftheirchildren.IntheaftermathoftheTsunami,theDayahsplayedanimportantroleinprovidingimmediatesupporttogreatnumbersofchildrenwhowereeitherseparatedfromtheirfamiliesorwhosefamiliescouldnotcareforthem.Fromveryinitialinformationgatheringintheseinstitutionsandwithorganisationslinkedtothem,thereisnodoubtthatalargenumberofchildrenwhowereaffectedbytheTsunamiarealsobeingcaredforintheDayahsacrossAceh.Asaresult,furtherresearchintheDayahsisneededtoestablishafullpictureoftheimpactoftheTsunamionresidentialcaresituation.Atthisstage,thepresentassessmentonlyextendeditsresearchtotheDayahsthatareofficiallyalsorunningaChildren’sHome.�

ItishopedthatthisrapidassessmentcanbegintoprovideamorecomprehensivepictureofthesituationofchildrenincareasaresultoftheTsunamiaswellastheimpactthatthisdisasterhashadontheprovisionofresidentialcareinNanggroeAcehDarussalamProvince(NAD).Thisresearchisprovidingabaselineofthesituationatapointintime,justoverayearafterthedisaster.FollowupandmoreregularassessmentswillneedtobecarriedouttodeterminewhetherpatternsofseparationasaresultoftheTsunamiarechangingandwhetherinterventionsaimedatpreventingthelongertermseparationofchildrenfromtheirfamiliesandcommunitiesaresucceeding.

This report also makes a number of recommendations on the basis of thisassessment.It isrecognisedthatmorecomprehensiveresearchisneededifwearetohaveafullunderstandingofthesituationofchildrenincareandnotjustofthosechildrenwhohavebeenplacedasaresultofthisdisaster.Inparticularassessmentsareneededto look in depth at the quality of care provided in the institutions in Aceh as well aspatternsofplacementandreviewoutsideoftheemergencycontext.Atthesametime,theimportanceofactingquicklyandeffectivelyinensuringthebestcareandprotectionoptionsforchildreninthispostemergencyphaserequiresustoidentifywhatactionscanbetakenimmediatelytopreventinterventionswhichmaybeharmfultothefulfilmentofchildren’srightsbothnowandinthelongerterm.

�Thereare860DayahsinAceh,caringforandeducatingover244,4�8childrenaccordingtotherecordsoftheProvincialOfficeoftheDepartmentofReligion(DEPAG).�60ofthesedayahsweredamageddirectlybytheTsunamiandover4000studentsarethoughttohavedied.


Part I TheResearchanditsContext

A. The Impact of the Tsunami on Children and Their Families

ThescaleoftheDecember2004Tsunamiandearthquakes’impactonthelivesofchildrenandtheircommunitiesinAcehisonlybeginningtobeunderstoodasisthefactthatittookplaceinacontextwhereconflicthadforover�0yearsunderminedtheprotectivesupportsystemsandenvironmentscrucialforthewellbeingofchildrenandtheir families.Over��0,000peopleareestimated tohavedied inAcehasa resultoftheTsunamiandanother�0,000arestillmissing.Whilenoactual figure isavailableonthenumberofchildrenwhohavedied,ifaroughestimateismadeonthebasisofthepercentageofchildrenintheNADPopulationpriortotheTsunami,itcanbeexpectedthat at least45,000childrendied. (The figure isprobablymuchhigheras it isknownthatahigherpercentageofchildrenwouldhavediedastheywouldhavebeenunabletosavethemselves).Atotalof569,�82peoplewereregisteredasdisplacedbytheTsunami


(SATKORLAK)andalmostayearon,inSeptember2005,therewerestill209,822peoplewhowere internallydisplaced,either living incamps,barracksorwithrelatives inthecommunity,amongthemover80,000children2.

Intheimmediateaftermathofthedisaster,manynationalandinternationalagenciesraisedconcernsaboutthesituationofchildrenwhowereseparatedorhadlostcarers.Governmentalandnon-governmentalagenciessettoworktoprovidearegistrationandtracingsystemforchildrenwhowereunaccompaniedor looking for their family.TheFamilyTracingandReunificationNetwork(FTR)�wasestablishedandacommontracingandreunificationsystemwassetup,includingatracingdatabasedevelopedbySavetheChildrenandlocatedwithintheDepartmentofSocialAffairs(provinciallevel)DINSOS.Atotalof2687childrenwereregisteredduringthatfirstyear(January2005-2006)asbeingunaccompaniedorseparatedfromtheirparents, themajorityofwhichwerereunitedwitheitherparentsorextendedfamilieseitherspontaneouslyor formallythroughtheFTRNetwork.

Inthefaceofincreasingconcerns,widelyreportedinthemedia,thatchildrenwerebeingseparatedandsentawayfromtheirremainingcommunitiesandfamilies,includinginsomecases,throughtrafficking,thegovernmentrespondeddecisivelytopreventthefurtherseparationofchildren.Itenactedarangeofgovernmentaldecisionstofreezealladoptionsintraorinter-country,andtopreventthetransferofchildrenabroad.ItpromulgatedabrandnewPolicy on Separated Children, Unaccompanied Children and Single-parent Children affected by Emergency Situations4.Thepolicystatesclearlythat“childrenreceivethebestcarewhentheyareinafamilyenvironmentandremainintheircommunity,cultureandreligion”.Itarticulatestheprinciplesuponwhichinterventionshouldbeledinrelationtoseparatedchildreninanemergency,inparticularthatseparationfromthefamilyandcommunityshouldbepreventedwheneverpossible,supportforfamilybasedcareshouldbeprioritisedandplacingchildrenininstitutionalcareshouldbeameasureoflastresort.Thepolicyalsoidentifiedtherangeofsupportthatfamiliesshouldbegiveninordertoensurethattheyareabletocontinuingcaringforthesechildrenduringtheemergency.

Despitethisimportantpolicy,thefocusofmostinterventionsaroundseparatedchildrencontinuedtobeonchildrenwhowereimmediatelyseparatedfromtheircarersaftertheTsunami.Therehas,infact,untilnowbeenlittleworkdonetoassessoraddressthepotentialimpactofthatdisasterlongertermonthecapacityoffamiliestocarefortheirchildren.

EarlyassessmentsfromtheworkwithseparatedchildreninAcehdidindicatethatthemajorityofchildrenwhohadbeenseparatedfromcarersorhadlostcarersinthedisasterhadbeentakeninbyextendedfamiliesand,insomecases,evenbyneighboursandmembersoftheircommunitiesintheimmediateaftermathofthedisaster.Outof28��separatedchildrenwhohadbeenregisteredbytheFTRNetworkasofMay2006,morethan80%arebeingcaredforbytheirfamiliesoralternatefamilies.Thesefamilieshaveshowngreatresilienceandresponsibilityinsteppingintocareforthesechildrenunder

2ThePostTsunamiPopulationCensusofSeptember2005(SPAN).Tables�.�and�.5.BadanPusatStatistik.�ThemembersoftheFTRNetworkaretheMinistryofSocialServices(DEPSOS),theMinistryofWomen’sEmpowerment(KPP),theprovincialDepartmentofSocialAffairs(DINSOS),UNICEF,SavetheChildren,ICRC,Cardi/IRC,LCO,Muhammadiyah,Pusaka,andtheChildFund.4IndonesianGovernmentPolicyonSeparatedChildren,UnaccompaniedChildrenandSingle-parentChildrenaffectedbyEmergencySituations.DEPSOS,��February2005.

A Rapid Assessment of Children’s Homes in post-Tsunami Aceh 5

verydifficultcircumstances,manyhavingthemselveslostmembers,housingandallmeansoflivelihood.Anastonishing�2,000peoplelivingwiththosewhohavebeendisplacedbythedisasterwerefoundtobemembersoftheirextendedfamily.Thatisalmost�6%ofthosedisplaced.(Only4.8%ofwhicharedirectrelatives,suchasgrandchildren,parentsorparentsinlaw.)(SPANSept.2005).

At the same time, the risk that these families may in the longer term findthemselves unable to care for these children is very real, particularly in a contextwhereinstitutionalcareisveryentrenchedasoneoftheprimaryresponsestocareandprotectionchallenges.

The population census in Aceh Province carried out by the Government inSeptember2005providedsomesenseofthepossiblelongertermimpactoftheTsunamionfamiliesandcommunities.Itshowedthat4.8%ofAceh’spopulationlosttheirhomesin the Tsunami and 9.8% had their homes damaged. In some of the worst hit areasthough,thepercentagesweremuchhigher,inAcehJayaforexamplewhere40.4%ofthepopulationhadlosttheirhomeswhile�5.5%ofthepopulationhadincurreddamagetotheirhomes.InBandaAceh��%losttheirhomesand25.7%hadincurreddamagetotheirhomes.DespitereconstructioneffortshavingintensifiedsinceDecember2005,therewasnodoubtthatmanyoftheover200,000displacedpersonsthatwerelivingincamps,barracksorwithrelativesinthecommunitycouldbeexpectedtoremainthereforsometimetocome.Inadditionthecensusshowedthatover�4,000childrenfromtheageof7-�2werenolongerinschool(2.6�%),aswellasover��,000childrenbetween��-�5yearsold(�2.29%)and97,000between�6-�8yearsold.(�6.04%)

Similarly the impact of the disaster on family’s capacity to earn a living variedenormouslyfromareatoareaandtypesoflivelihoodavailable,withthehighestemploymentareainBenerMeriahat74.2%ofthepopulationandthelowestrecordedinLhokseumawewithonly4�%ofthepopulationemployed.Eventhenthesustainabilityofpost-Tsunamilivelihoodstrategiesandtheextenttowhichthisdisasterhasimpactedonchildlabourremainunclear.

Whatthesefiguresdoshowisthatthesecureandstableenvironmentthatfamiliesandcommunitiesneedtoensurethecareandprotectionoftheirchildrenseriouslyislikelytobeaffectedinthelongerterm.Communitieswillcontinuetobeinmanyplacesunsettledandeventornapartasaresultofthefundamentalneedtofindlivelihoodopportunitiesandsearchforadequatehousing.Whilethepaceofreconstructionhasincreasedsince,onlyanestimated�0%ofpermanenthousinghadbeenrebuiltduringthefirstyear.5Manyfamilieswerecontinuingtoliveininappropriatetemporaryhousingforatleastanotheryearandinsomecasesmuchlonger.Thecaresituationofmanychildrenwillremainfluidasfamiliesfaceuptothelongertermimplications,includingfinancialimplications,ofcaringforchildreninthepostTsunamicontext,inparticularforsingleparentsorextendedfamiliescaringforchildreninatoughsocio-economiccontext.

ArapidassessmentofChildren’sHomesandafollowupassessmentofDayahsinAceharethereforecrucialstepstodeterminewhether,firstofall,indicationschildrenwhohavelostcarersasaresultoftheTsunamiaremostlybeingtakencareofinextended

5IndependentEvaluationoftheDECTsunamiCrisisResponse.December2005.p.4


familiesarecorrectandsecondly,whetherthisisgoingtocontinuetobethecaselongertermorwhethersecondaryseparationmayinfactbecomeaseriouschallengethatwillneedtobeaddressed.

B. Residential Care in Indonesia

TherecognitionthattheStatehasaresponsibilitytostepinwhereforanyreasonafamilyisunabletocarefortheirchildrenwasestablishedfirmlyasfarbackthe�945ConstitutionofIndonesia.Article�4(�)oftheConstitutionstatesthat“theindigentandabandoned children shall be cared for by the state”. The establishment of residentialinstitutions fororphansandneglectedchildrenpre-dates theConstitution thoughandit isthoughtthatthemoreformalconceptofStatecontrolledchildcareinstitutionsinIndonesiadevelopedduringthecolonialperiod.6

Theconceptofchildcare in Indonesia is firmly rooted inawelfaristapproachthatrequirestheStateandthecommunitytostepintoprotectandcarefor‘neglectedor abandoned’ children or children ‘with problems’, usually through the provision ofinstitutionalbasedcareandservices.7Thisfocusontheprovisionofsocialwelfarethroughinstitutions,Panti Sosial,isnotonlytrueofchildcareservicesbutallothersocialformsofsocialservices,withDEPSOSrecognisingandsupporting�5typesofinstitutionsprovidingarangeofservices,mostbeingresidential.8

‘Neglectedchildren’hasbeenunderstoodtorefertoanychildwhoseparents‘foronereasonoranother,areincapableofprovidingforthechild’sneeds’,asaresultofwhichthechildsuffersneglectorabandonment9.Assuchitismostlynon-judgmentalandmerelyseekstoremedythe impactofsocio-economic factors,particularlyarising fromsocialandnaturaldisasters,onthecapacityofparentsandfamiliestocarefortheirchildrenbyprovidingalternativecarefacilities.TheMinistryofSocialServiceshastraditionallyincludedinthiscategoryorphans,fatherlessandmotherlesschildren,aswellaschildrenwhoaredeprived(literallywho“donothavethecapacity”-tidak/kurang mampu)whetherasaresultofeconomicorsocialreasons.�0

FollowingratificationoftheUNConventionontheRightsoftheChild(CRC)in�990,IndonesiaadoptedanewlawonChildProtection,LawNo2�(2002),whichsoughttointegratetheCRCintonationallegislation.Itredefineda“Neglected/AbandonedChild”asachild“whosereasonableneeds,whetherphysical,mental,spiritualorsocial,arenotfulfilled”providingamorechildfocuseddefinitionwhichseesthefulfilmentoftheneedsofthechildaskey.��

6GeneralGuidelinesforthetheoperationofchildcareinstitutions.DEPSOS.2002.p.57Article��(2)LawNumber4of�979onchildren’swelfare(OfficialGazetteoftheRepublicofIndonesia�979Number�2,SupplementtotheOfficialGazetteoftheRepublicofIndonesiaNumber��4�;SeealsoGovernmentRegulationNumber2of�998onGovernmentRegulationNumber2of�988onimprovingthewelfareofchildrenwithproblems;8Theseincludeinstitutionsforwomen,peoplewithdisabilities,theelderly,teenagers,thementallyill,thosesufferingfromsubstanceabuseaswellasinstitutionsfor“naughtychildren”,vocationalcentresforchildrenandyoungpeoplewhohavedroppedoutofschool,anddaycarecentresfortoddlers.See�992DEPSOSbookletbutalso“StandardisasiPantiSosial”PerubahanKeputusanMenteriKesehatandanKesejahteraanSosialNomor�9�/MENKES-KESOS/III/2000tentangStandardisasiPantiSosial(50/HUK/2004)pp4-6.9GeneralGuidelinesfortheOperationofChildcareInstitutionsasPartoftheProvisionofServicestoNeglected/AbandonedChildren.(2002)DEPSOS.PartD,2(E).�0SeeArticle�,LawNumber4of�979onchildren’swelfare.SeealsoBadanPelatihandanPengembanganSosialDepartemenSosial,2004:5)��LawNo2�onChildProtection(2002),Article�(6).


Thislawalsobroughtforthefirsttimeconceptsofchildprotectionandchildcareunderachildrightsframeworkinsteadofapuresocialwelfareone.Inparticular,Article7andArticle�4recognisethatachildhastherighttoknowandbebroughtupbyhisorherparentsandthatseparationshouldonlyberequiredwherethatisinthebestinterestofthechildandasalastresort.

Italsorestatedtheprinciplethat“shouldforanyreasonhis/hernaturalparentsnotbeabletoguaranteethechild’sgrowthanddevelopment,orthechildhasbeenneglectedand/orabandoned,thenthesaidchildmaybefosteredoradoptedasafosteroradoptedchildbyotherpersoninaccordancewiththeprovisionsofthelawsandregulationsineffect(Article7(2)ofLawNo2�(2002)).Assuchitbroughttogetheraframeworkforalternativecarethatincludesadoption,fostering,andguardianship.Fosteringisunderstoodhowevertobecarriedoutformallyprimarilythroughinstitutionsalthoughitcanalsobedoneinformallywithinthefamily.

Followingtheadoptionofthislaw,DEPSOSupdateditsguidelinesandprovidedinparticularsetsofguidelinesanddirectivesforthecareofchildrenininstitutionsandthecareofchildren‘outsideofinstitutions’.�2Whiletheconceptshaveclearlyevolvedtounderscoretheimportanceoffamilybasedcare,thereisnodoubtthattheemphasisisstillontheprovisionofcareservicesforchildreneitherinorthroughtheChildren’sHome.

TheaimofthePanti Sosial Asuhan Anak (Children’sHomesorFosterHomes)wasoriginally toactasanalternative“parent”.��AtthesametimesocialwelfareconceptsdevelopedintheMinistryofSocialServicesincreasinglysawtheseinstitutionsasplayingabroaderrole,becomingfocalpointsforthedeliveryofservicesforchildrenandtheirfamiliesatthecommunitylevel.The2002DEPSOSGeneralGuidelinesfortheOperationofChildcare Institutionsand the following2004DEPSOSGuidelines for theProvisionofChildcareinInstitutionsidentifyarangeofkeyfunctionsforcareinstitutionsworthquotinginfull:

“A childcare institution provides children’s welfare services based on a social work approach.14 Accordingly, the functions of a childcare institution may be enumerated as follows:1. Serving as an institution that provides welfare services to children. A childcare institution provides the services that would otherwise be provided by

the child’s parents.

2. Serving as a source for information, data and consultation on children’s welfare. A childcare institution provides information and data that is required by third parties,

particularly as regards the rights of children, their needs, available alternatives for resolving their problems, the resource systems normally employed and their potential, the services models used, etc. These institutions can serve as vehicles

�2GeneralGuidelinesfortheOperationofChildcareInstitutionsasPartoftheProvisionofServicestoNeglected/AbandonedChildren.(2002)DEPSOS,DirectorateGeneralofSocialandRehabilitationServices,DirectorateofChildren’sSocialServicesDevelopment;GeneralGuidelinesfortheProvisionofSocialServicestoChildreninChildcareInstitutions(2004)DEPSOS,DirectorateGeneralofSocialandRehabilitationServices,DirectorateofChildren’sSocialServicesDevelopment.;Guidelines for theProvisionofNon-InstitutionalSocialServices toNeglected/AbandonedChildren, (2004)DEPSOS,DirectorateGeneralofSocialandRehabilitationServices.��DEPSOS’sGeneralGuidelines for theProvisionof Social Services toChildren inChildcare Institutions (2004)defines a childcare institution as aprofessionalserviceproviderthatisresponsiblefortheprovisionofcaretoneglected/abandonedchildreninsuchawayastosubstitutefortherolesoftheirparents’.Chapter�C2.(DirectorateofChildren’sSocialServices,2004:4).�4“Asocialworkapproachrepresentsaprofessionalapplicationthatisbasedonacombinationofart,skillandknowledgeastestedbasedonprofessionalnorms.Thesocialworkapproachstressescross-sectoral,cross-profession,andcross-disciplineeffortsaspartofaservicenetwork,whichnowadaysisknownascasemanagement.”


for accessing and supplying the resources that are required by all parties involved. Accordingly, they also function as consultative institutions, that is, by providing consultation services to those who require them. A number of issues require attention in this regard, including the following:a. a comprehensive children’s welfare information system and social mapping will

be required;b. the dissemination of information about childcare institutions through promotions,

publications and campaigns should be undertaken. In order to do this, outreach techniques will need to be mastered;

c. special units need to be established to handle information, data and access under the supervision of social workers;

d. research and studies need to be undertaken so as to develop appropriate service models that are in line with the changes taking place in society.

3. Serving as referral institutions

Childcare institutions serve as referral institutions for families, the community, the state and other parties. Such referrals are not solely confined to services, but also involve the referral of children to other institutions in particular cases. In their capacity as referral institutions, each childcare institution needs to apply standard regulations regarding recruitment and referral patterns. Accordingly, each childcare institution needs to be fully familiar with the resource systems that will be employed as part of its collaborative network in making referrals.15

4. Serving as agencies through which the public may become involved in providing welfare services to children. Childcare institutions provide an opportunity to the public to play a role in helping improve the welfare of children. The public need to be encouraged to provide support for and to become involved in the process of providing services to children. In order to realize this, the following matters require attention:a. Childcare institutions need to be open to the public, particularly in the context

of seeking support from the community.16

b. The community needs to be fully involved in the various service programs undertaken by childcare institutions.

c. Childcare institutions should become involved in the efforts to resolve social problems in the community, especially where these concern the welfare of children.17

ItisuncleartowhatextenttheseconceptsarebeingappliedininstitutionsacrossIndonesia,particularlyoutsideofthosebeingrunandowneddirectlybyDEPSOSasverylittleresearchanddata isavailableaboutresidentialcaregenerally.TheoverwhelmingmajorityofChildren’sHomes in Indonesiaareprivatelyownedandrun.Thereareanestimated7000Children’sHomesacrossIndonesia�8.DEPSOSprovidesfinancialsupport

�5“Bycollaborativenetworksismeantcooperativenetworksthatarecoordinatedasbetweenthechildcareinstitutioninquestionandotherpartiesinthecontextofimprovingthequalityofservicesprovidedtochildren.”�6Everychildcareinstitutionrequiressocialsupportifitistobemaintained.Withoutsuchsocialsupport,itmaybetakenforgrantedthatthesustainabilityoftheservicewillfacedifficulties.�7GeneralGuidelinesfortheProvisionofSocialServicestoChildreninChildcareInstitutions(2004)DEPSOS,ChapterIIB.�8MakmurSunusi,DirectorforChildWelfareServices,MinistryofSocialAffairs,RepublicofIndonesia,referredtoin‘SupportingtheDevelopmentoftheAlternativeCareSystematRegional(Aceh)andNationalLevelsinIndonesia’(September2005),InternationalSocialService.(ISS)


eitherdirectlyorthroughtheProvincialGovernmenttoover�450Children’sHomesacrossIndonesiacaringforover�27,000children.Outofthose�2arerundirectlybyDEPSOS,60bylocalgovernmentand��78areprivatelyowned.Iftheestimateiscorrect,thismeansthattheinstitutionscomingundersomeformorotherofsupervisionbytheGovernmentcouldamountto lessthanhalfofthetotalofsuchinstitutionsacrossIndonesia. Italsomeansthatonly�-2%ofChildren’sHomesaregovernmentrun.TherearehowevernoofficialdataforallChildren’sHomesandthesystemofregistrationfortheseinstitutionsissuchthatnosuchdatacanbegathered.�9ItalsomeansthatnodataisavailableonthenumberofchildrenbeingfosteredintothecommunitythroughtheChildren’sHomesinIndonesia.

ThecapacityoftheMinistryofSocialServicestosupportandsupervisechildren’sservicesatthelocallevelwasalwaysverylimited.ItbecameevenmoresowhentheentireDepartmentwastemporarilydisbandedundertheadministrationofPresidentGusDurin�999.Althoughitwasre-establishedayearlateranditsmandatereinstated,theradicalpoliticaldecentralisationprocessthattookplace in2000furtherunderminedboththecapacityandtheroleofDEPSOSinrelationtotheprovisionofchildcareininstitutionsacrossIndonesia.Sincethen,apartfromthefinancialsupportitprovidestoinstitutions,DEPSOS has seen its role as primarily a standard setting role and it has focused ondevelopingpoliciesandguidelinesfortheprovisionofchildren’sservicesaswellaspiloting‘bestpractice’Children’sHomes.20

WhileithasovertimedevelopedarangeofguidelinestosecureminimumstandardsofcareininstitutionsanditworkstowardssupportingthecapacityoftheprovincialandDistrictlevelSocialServicestodeliversocialservicesonthebasisofthesestandards,itsowncapacitytoensurethishappensaswellasthatofDINSOSattheProvincial levelisverylimited.Systemsofsupervisionandmonitoringofinstitutionalcareremainverybasicandmostmonitoringthattakesplacefocusesprimarilyonfinancialaccountabilityfor funds received from the government and procedural requirements in relation tolegaldocuments.DespitehavingadoptedguidelinesfortheaccreditationofsocialcareinstitutionswhichisduetobeadministeredbyaCommissionontheAccreditationofsocialcareinstitutions(KomisiAkreditasiPantiSosial-KAPS)andaSurveyTeam2�,thissystemhasyettocomeintoforceandnoprocessofaccreditationormonitoringhassofarbeenestablished.Inaddition,theaccreditationguidelinesarealsofocusingoncataloguingtheChildren’sHomesaccordingto�categories(A,B,C)basedprimarilyonwhethertheyfulfiloperationalrequirementsratherthananassessmentofthequalityofcareprovidedtochildren.ItisalsonotclearwhattheimplicationsarefortheChildren’sHomes,shouldtheyfallunderanyofthesecategoriesandwhetherbeingrelegatedtoalowercategoryhasanyimplicationforthefinancialsupportreceivedbytheinstitution.

WiththeadoptionofthePolicy on Separated Children, Unaccompanied Children and Single-parent Children affected by Emergency Situations22intheaftermathoftheTsunami

�9ForissuesrelatingtotheRegistrationsystemforinstitutionsPartII.E20Seeforexample‘SupportingtheDevelopmentoftheAlternativeCareSystematRegional(Aceh)andNationalLevelsinIndonesia’(September2005)InternationalSocialService.AppendixBandC.2�GuidelinesontheAccreditationoftheSocialCareInstitution(PantiSosial)KeputusanMenteriSosialRepublikofIndonesiaNo:50/HUK/2004.AppendixIII.22IndonesianGovernment Policy on Separated Children, Unaccompanied Children and Single-parent Children affected by Emergency Situations.DEPSOS(��February2005)

�0 A Rapid Assessment of Children’s Homes in post-Tsunami Aceh

disasterinFebruary2005,anewstepwastakentobringconceptsofchildcareinIndonesiain line with international standards. In particular its affirmation of the importance offamilybasedcareandthefactthatinstitutionalcareshouldalwaysbeseenalastresortrepresentsamajorconceptual shift.Thiswill requireasimilarshift in implementationboth in terms of moving away from the provision of child services primarily throughresidentialcareandintermsoftheGovernmentandthecommunitybeingabletosupportandstrengthenfamilybasedcareandservices.ThisisamajorchallengeforDEPSOSandforallcommunityorganisationsandnongovernmentalorganisationsworking forchildprotectioninIndonesia.

C. The research in Aceh (Nanggroe Aceh Darussalam Province)

1. Scope of the assessment

TheDepartmentofSocialAffairsattheProvinciallevel,DINSOS,hadaregisterof�68institutions(PantiSosialAsuhanAnak)knowntobecaringforchildreninAceh(9government-runand�59privatelyrun).Inadditiontherewere�4registeredinstitutionsthatcaredspecificallyfordisabledpeopleincludingchildrenintheProvince(�government-runand��privatelyrun)bringingthetotalofknownChildren’sHomesinAcehontheDINSOSregisterto�82.

TheDINSOSregisterofChildren’sHomesinAcehwasdatedMarch2005,barelythreemonthsaftertheTsunami,butitwassuspectedthatthislistwasprobablyapartiallyupdatedlistofpreviousones.ThereisnosysteminplaceattheProvincialorDistrictleveltoregularlycollateandupdatedatafromtheinstitutionsinAceh.Atthesametime,itwasclearthatanumberofChildren’sHomeshadbeenstruckandinsomecasesdestroyedbytheTsunamiandearthquakeswhileaspateofnewChildren’sHomeswerebeingbuiltinresponsetothedisaster.Inaddition,theinformationavailablefromsomeoftheChildren’sHomesdidshowthatchildrenwerebeingplacedininstitutionsintheaftermathofthedisaster,andinsomecasessomeoftheseinstitutionswerereceivingsignificantnumbersofnewarrivals.ItwasthereforeimperativetoupdatetheDINSOSlisttoensurethananaccurateandupdatedlistofinstitutionscaringforchildreninAcehwasavailableaswellascomprehensiveinformationonthesituationofchildrenenteringcareasaresultofthedisaster.

DEPSOS,astheprimarygovernmentbodyresponsibleforthewelfareofchildrenrecognisedthatithadtheresponsibilitytoensurethatthewhereaboutsandsituationofseparatedchildreninAcehwasfullyknownandthattheirneedswereassessed.SincetheTsunamiithadbeenprovidingdirectsupportinAcehtoDINSOSwhosecapacityhadalsobeensignificantlyweakenedasaresultofthedestructionandmassivedeathtoll,includingamongitsownworkers.WithsupportfromSavetheChildrenitdecidedtocarryoutaRapidAssessmentofallChildren’sHomesinNADProvinceinordertoprovideanupdatedpictureofthesituationofchildrenplacedincareandthesituationofinstitutionalcareintheaftermathoftheTsunami.


ItwasdecidedinthefirstinstancetofocustheassessmentontheChildren’sHomesincludingtheHomesfortheDisabledthatcareforchildreninordertohaveacompletepictureofchildreninformalcare.AsecondRapidAssessmentisalsoplannedwithsimilarresearchaboutchildrenwhohaveenteredthecareoftheDayahs(ReligiousBoardingSchools)asaresultoftheTsunamiasitisknownthatthesefulfilanimportantcareroleinAceh.ThisRapidAssessment,though,didgatherdatafromtheChildren’sHomesthatarebeingrunwithinDayahs.InAcehanumberofDayahshaverecordedthefactthattheyrunaChildren’sHomeaspartofthecareandeducationfacilitiestheyprovide.Itwasalsodecided,consideringtheurgentneedforinformationontheirsituation,tofocusongatheringbasicinformationaboutchildrenincarewhowereaffectedbytheTsunamiinordertoensurethatinterventionstargetingseparatedchildrenpostTsunamiwereeffectiveandappropriate.Indoingso,itwasrecognisedthattheresearchwouldbelimitedandnotprovideafullpictureofthesituationofchildrenincareinAceh.Thescopeofthisstudyandthetimeconstraintswouldnotallowatthisstageathoroughassessmentofcareprovisionsandservices.AfullassessmentofinstitutionalcareinAcehisverymuchneeded,asitisindeedforthewholeofIndonesia,butitwasfeltthatthisshouldbeleftforamorecomprehensivestudy.

TheresearchcoveredallofNADProvinceexceptNaganRayaasithadnorecordedorknownChildren’sHomescaringforChildren.

2. Aims of the research

Theresearchhadthefollowingaims:

a. Ensuring that systematic data is gathered on the number and situationofchildrenpresently in institutions(Children’sHome)asaresultoftheimpactoftheearthquakesandTsunamiwhetherdirectly(throughthelossofprimarycarers)orindirectly(throughsecondaryseparationasaresultofcarersnotbeingabletocareforthem).

b. EnsuringthatallchildrenwhohavebeenplacedininstitutionsasaresultoftheTsunamithathavetracingneedsinrelationtotheirfamiliesareidentifiedandthatalistisprovidedtotheFTRNetworktoensurethatfollowupregistrationandtracingservicesareprovidedandthattheirinformationisincludedintheFTRdatabase.

c. Identificationandrecordingofinformationaboutanynewresidentialcareinstitution thathasbeenestablished as a resultof theearthquakes andTsunamitoensurethatproperlicensingandregistrationtakesplace.

d. In addition, theassessmentwas toensure thatbasic informationaboutotherchildrenintheinstitutionsinAcehwasalsorecordedandwhiletheveryshorttimeframeforthisresearchdidnotallowittogointoanydepthaboutthesituationofthosechildrenoranyothercareandprotectionissues,theteamwereaskedtogatheranyotherrelevantinformationwhichmightshedlightonthesituationofchildreninformalcareinAceh.


3. The Research process and methodology

TheassessmentwascarriedoutovertwoperiodsfromDecember2005toMarch2006.Theresearch,methodologyandguidelinesweredesignedbytwoprotectionadviserssecondedtotheDirectorateofChildren’sServicesinDEPSOSbySavetheChildren.TheresearchwascarriedoutbyateamofDEPSOSsocialworkersdeployedtoAcehwithfinancialsupportfromUNICEF.SavetheChildreninAcehalsoprovidedtheteamswithtransportandlogisticalsupport.Inaddition,thesocialworkersidentifiedlocalsocialandcommunityworkersineachdistrictincluding,wheretheywerestillactive,fromthePSM(PekerjaSosialMasyarakat),anetworkofcommunitysocialworkers,toaccompanyandsupporttheirworkatthelocallevel.

Thefirstassessmentwascarriedoutovera�7dayperiodfrom28thDecember2005to�5thJanuary2006byateamof�2peopleandcovered�6�Children’sHomes,acrossNADincluding�44Children’sHomesforNeglectedChildren,4Children’sHomesforNeglectedChildrenthatwerenewlybuiltsincetheTsunamiand��HomesfortheDisabledthatcareforchildren.AworkshopwasheldwiththeteamsinJakartaonthe�0thJanuary2006toanalyseanddiscusstheresultsofthefirstpartoftheresearchandplanthefinalpart,identifyinggapsandstrengtheningthemethodologyasaresult.

Thesecondpartoftheresearchwascarriedoutfromthe26thFebruarytothe6thMarch2006byasmallerteamof5people,againaccompaniedbylocalcommunityworkers.Theaimwastoreachthe institutionsthathadnotbeenreached in the firstassessment,coveranumberofnewinstitutionsthathadbeenidentifiedsinceandhadnotbeenrecordedpreviouslyandcrosscheckonsomeofthedata.Theteamcovered45Children’sHomesinthislaststage,includingafewpreviouslyvisitedtodoublecheckonthedata.

Theteamswereprovidedwith�questionnairesandaResearchGuiderequiringthemtocollectarangeofdataintheChildren’sHomeincluding:

• Basicdataaboutthenumberofchildrenpresentlyintheinstitution.• Dataaboutthenumberofchildrenthatare inthe institutionasaresultofthe

Tsunami/earthquakes and information about age, sex, parental status, date ofplacementandlengthofplacement,decisionmakerfortheplacement,numberofsiblings inthe institution,education level, frequencyofmeetingswithfamily,prospectforreunification,reasonsgivenforplacement,locationofhomeinrelationtolocationofinstitutionandinformationaboutdisability.

• DataonchildrenwhoareintheinstitutionasaresultoftheTsunamiandwhohavealreadybeenregisteredbymembersoftheFTRnetwork,includingbasicdatatoensurethatthedataenteredintheFTRdatabaseiscorrect.

• IftherearechildrenplacedintheinstitutionasaresultoftheTsunamithathavenotyetbeenregisteredbytheFTRnetworkbuthavetracingneeds,basicinformationshouldberecordedinlinewiththeFTRprocesstoensurethatfollowupregistrationandtracingcantakeplacebymembersoftheFTRnetwork.


• In relation to institutionscaring forchildrenwithdisabilities, inaddition to theabovebasicinformation,anassessmentofthetypesofdisabilitiesfacedbythesechildrenshouldbeprovided.

• Informationaboutallcareinstitutions(privateorpublic)includingthosethathadbeenestablishedsincetheearthquakeandTsunami,withdateofestablishment,addressandcontactdetails,managementstructuresanddetailsofthoseresponsible,numbersandbreakdownofchildrenbyage,sex,andparentalsituation,numbersofstaff,sourcesoffundingetc.

• Collectionoftheupdatedregistryofalltheinstitutionsvisited,ifavailable,includingfulldataandbreakdownofchildrenbyage,sex,andparentalsituation,numbersofstaffetc.

• OtherdataonchildrenwhoarebeingcaredforintheinstitutionsthatmayshedsomelightontheirsituationincludingchildrenwhoareincareasaresultoftheconflictinAceh.

4. Definitions and understandings used for the Survey

Guidelinesfortheresearchthataccompaniedthequestionnairestogetherwithbriefings of the research teams did establish some clear understanding of definitionsthatwerebeingusedanddatathatwassought.Atthesametimeitbecameobviousthatunderstandingofsomeoftheseconceptswerenotalwayssharedbythemanagersofinstitutionsorlocalworkers.Thisisinevitable,particularlyinacontextwheremanyoftheconceptsareeitherneworhaveacertainconnotationlocally.

Thedefinitionofseparatedchildrenforexample,whileclearlystatedinallmaterialsproducedfortheFamilyandTracingNetworkandintheGovernmentPolicyonthisissue,provedtobeconsiderablyconfusingformanypeopleincludingthosethathadbeeninvolvedpreviouslyintracingworkwiththeNetwork.AstheprimaryfocusoftheFTRworkwasonsupportingchildrenactuallylookingfortheirparentsintheimmediateaftermathoftheTsunami,therewasquitealotofconfusionregardingwhetherachildwhowasplacedbyacarerinaninstitution,actuallyconstitutedaseparatedchild.Equally,theuseofcertaintermssuchas‘Panti’,or‘Dayah’forexample,variedconsiderablydependingonthecontextinwhichtheywerebeingused.ADayah,forexample,maydecidetostatethatithasa‘Panti’withtheintentofreceivingfinancialsupportfromtheMinistryofSocialServicesandthecommunity;alternativelyseeitselfpurelyasaDayahsothatitmayreceivefinancialandother formsof support from theMinistryofReligion, religious institutionsor theMinistryofEducation.Inthesameveinitmayidentifyitselfasbothatthesametimeandaccessmoresourcesofsupport.Asaresultsome‘Panti’arenamedonlyasDayahsandsomeDayahshavealsoaddedthenameof‘Panti’.Thismaderesearchmorecomplex.Asaresult,clarificationoftheuseofkeytermsandconceptsinthefieldwassoughtfromtheresearchteamandthiswastakenintoaccountintheanalysisfromthisresearch.

Someofthekeytermsforthisresearchwereunderstoodasfollows:

a. Neglected ChildrenarechildrenwhohavebeenplacedintheChildren’sHomeasaresultoftheircarersnotbeingableorwillingtocareforthem.ThesechildrenareusuallyreferredtobytheChildren’sHomeasbeing“faktormiskin”,ifthere


duetopovertyor“tidakmampu”,fromfamilieswhodonothavethecapacitytocareforthem.Theyincludechildrenwhostillhaveboththeirparents,childrenwhohavelostboththeirparents(‘real’orphansoryatimpiatu),fatherlesschildren(yatim)andmotherlesschildren(piatu).ThetermusedinIndonesiaforchildrenbeingcaredforintheChildren’sHomes,AnakAsuh,isliterallytranslatedas‘fosterchild’asformalfosteringisunderstoodexclusivelyunderIndonesiansocialwelfareconceptsandlawsasthecaregivenbyorthroughtheChildren’sHomes.Inordertoavoidconfusionthisreportusesthebroadertermof‘ChildreninCare’tomeanthetotalpopulationofchildrenbeingcaredforintheChildren’sHomeswhateverthereasonfortheplacementandwhetherpreTsunamiorpostTsunami.NeglectedChildren,DisabledChildren,ChildVictimsoftheTsunamiandChildVictimsoftheConflictarethereforeasub-groupofthatbroader‘ChildreninCare’group.

b. Child Victims of Tsunami as understood in this research and by the institutionsthemselvesincludesthefollowingcategories:

�) Childrenwholivedwiththeirparents/families/carerspreTsunamiandwhowere placed as a result of the Tsunami in the Children’s Home, whetherimmediatelyafterwards(hoursordays)orsometimeafterwards(monthstoayear).

2) ChildrenwhowereintheChildren’sHomebeforetheTsunamistruckandwhoseinstitutionwashitbytheTsunami.

Itisimportanttonotethattheoverwhelmingmajorityof“ChildVictimsoftheTsunami” were living with their families and communities before the Tsunami hit andonlyasmallnumberofchildren,mainlydisabledchildrenandchildrenonthewestcoastwhoseChildren’sHomewashitandtotallydestroyedbytheTsunamiwereidentifiedasvictimsoftheTsunamiforthepurposeofthisresearch.ItisnottosaythatotherchildrenintheChildren’sHomeswhoweretherepreviouslywouldnothavebeenaffectedbytheTsunami,astheimpactofthedisasterontheirfamilieswouldcertainlyalsoimpactontheirsituation.Atthesametimethisresearchwasaimingtofocusontheimpactofthatdisasteronthecaresituationofchildren.

c. Child Victims of the Conflictareunderstoodas:

�) Childrenwhosefamiliesbecamevictimsofterror,threats,killings,displacementandwhosehomesweredestroyedintheconflict.(themajorityofcases)

2) Childrenwhocamefromactiveconflictzone.�) Childrenwhowereinvolveddirectlyintheconflict,eithercarriedweapons,

receivedmilitarytrainingandwereparticipantsintheconflict.4) Childrenwhowereindirectlyinvolvedintheconflict,forexampleas

courierorinformants.

Itisimportanttonotethat,unlikeforchildvictimsoftheTsunami,thisresearchdidnotseektosystematicallyidentifychildrenwhowereintheChildren’sHomesasaresultoftheconflictinAcehasitwasfeltthatseparateresearchandmethodologywouldberequiredinordertogetthisdata.Thesensitivity

A Rapid Assessment of Children’s Homes in post-Tsunami Aceh �5

of identifying a child as being linked to the conflict and the possibility ofstigmatisationfromsuchalabel,meanthatsuchchildrenmaynotalwaysbeidentifiedoutrightashavingbeenavictimoftheconflict.Theremaybewidevariations in identificationanduseof suchstatusacrossparticulardistrictsofAcehthathavebeenaffecteddifferentlybytheconflict.Asaresult,thenumbersofchildvictimsoftheconflictpresentedinthisresearchisbasedonlyontheidentificationbytheChildren’sHomeofthestatusofthesechildrenratherthananinvestigationofwhetherthiswasactuallythecaseorwhetherotherchildrenshouldalsobeincluded.ThedatagiveninthisreportonchildvictimsofconflictinChildren’sHomesinAcehshouldthereforeonlybetakenasanindicationratherthananactualfinalnumber.

d. Disabled Children areunderstoodaschildrenwhoareconsideredtohaveadisabilitywhethermentalorphysical.AlmostallofthesechildrenwereplacedintheHomesfortheDisabledalthoughtherewereafewexceptionsofchildrenwithdisabilitiesin “Neglected Children’s Homes” and vice versa. It is important to note thatchildrenwithdisabilitiescanofcoursealsobevictimsoftheTsunamiandvictimsofconflict.

e. Children’s HomeorPantiisbeingusedinterchangeablyinthisreportandreferstoallresidentialfacilitiescaringforneglectedchildrenordisabledchildrenwhethergovernmentalorprivate,whetheroccupyingaprivatehouseforasmallgroupofchildrenorwhetherinabuildingwithdormitoriesformorethan200children.ThefirstcategoryofHomesreferredtointhisstudyarethePanti Sosial Asuhan Anak,whichliterallymeans‘FosterorCareInstitutionforChildren’andwhichisreferredtointhisreportasNeglected Children’s Homesastheycareprimarilyforchildrenwhofallunderthiscategory,includingorphans,fatherlessormotherlessaswellasotherchildrenwhoseparentscannotcareforthem.Theterm‘orphanage’howeverisnotusedasthemajorityofthechildrenarenotorphans.ThesecondcategoryistheHomes for the Disabled or Panti Sosial Penyandang Cacatorliterally‘InstitutionforPeoplewithDisability’.These institutionscare forbothadults andchildrendeemedtohaveadisabilitywhetherphysicalormental.Alltheseinstitutionsareunderstoodtofulfilacare/fosteringfunctiontogetherwithaneducationalone.

f. DayahisthetermusedinAcehforPesantren,areligiousIslamicboardingschool.TherearetwotypesofPesantreninIndonesia,Salafi whicharetraditionalschoolsthatonlyprovideIslamicstudiesandModern DayahsorDayah Terpadu whichprovideamixofnationalcurriculumbasedstudiestogetherwithIslamicstudies.InAcehtherearea recorded860Dayahs,ofwhich762areSalafi and98areTerpadu/Modern.

g. Tsunami isunderstoodasreferringtotheearthquakeand/ortheresultingTsunamiof 26 December 2004. For the purpose of this research it was not sought todifferentiate between the impact of the Tsunami itself and the impact of theearthquakesthatprecededit.

h. A separated Child isdefinedas achildwhohasbeenseparatedfrombothofhis/herparents,orprimaryguardianbasedoncustomarylaw(adat) orstatelaw.(Indonesian Government Policy on Separated Children, Unaccompanied Children and Children left with One Parent in Emergency Situations. 11 February 2005. Article B.1. DEPSOS)


i. An unaccompanied child is defined as a child who has been separated frombothofhis/herparents,andisnotbeingtakencareofbyanadultwhohasaresponsibilityundercustomarylaw(adat) orstatelawtodoso.(Indonesian Government Policy on Separated Children, Unaccompanied Children and Children left with One Parent in Emergency Situations. 11 February 2005. Article B.2. DEPSOS)

j. A Childisdefinedaseveryhumanbeingbelowtheageofeighteenyears(Article�oftheConventionontheRightsoftheChildandArticle�(�)ofLawNo2�onChildProtection(2002))Forthepurposeofthisresearch,informationaboutyoungpeoplewhoare�8yearsoraboveandstillcategorisedaschildrenbytheChildren’sHomeswillalsobeincluded.

5. Challenges

TheaimofthisRapidAssessmentwastoidentifywithinashortperiodoftimetheimpacttheTsunamihashadonthecaresituationofchildren,inparticularintermsoftheuseofChildren’sHomesasacaresolution.ItcouldnotassessallaspectsofthecaresituationindepthnorseektoreachallTsunamiaffectedchildrenasitisknownthatanumberofthesechildrenarebeingcaredforininstitutionsoutsideofAceh,includinginChildren’sHomesinMedan,Jakarta,MalangamongothersbutalsoinsomeinstitutionsabroadinparticularinMalaysia.ThetotalnumberofchildrenincareasaresultoftheTsunamiwillnotbeknownuntilthesechildrenareidentifiedandinparticularuntilresearchonthechildvictimsoftheTsunamiintheDayahsinAcehisalsocompleted.ThenumbersofchildrentakenoutofNADisnotknownbutinformationavailableindicatesthatthenumbersremainrelativelysmallwiththeexceptionofMedanwhereoneinstitutionisknowntobecaringfor245children,97%ofwhomareTsunamiaffectedchildrenfromAceh.InformationreceivedsofaralsoindicatethatsomeofthechildrenwhoweretakentoinstitutionsinJakartaandotherpartsofJavahaveorarereturningtoAcehbutacompletepicturewillnotbeknownuntilthesituationofthesechildren’shomesisalsoassessed.

OneofthekeychallengesinthisresearchwasalsothepossibilityofnumbersofchildvictimsoftheTsunamibeinginflatedduetotheenormouslevelofaidbeingavailableinPostTsunamiAceh,particularlyinrelationtotheinstitutionscaringforthosedeemedtobe‘Tsunamiorphans’.Thesechildreninsomeunfortunatecaseshavecometobeseenas‘commodities’aspublicconcernforwhatwasthoughtinitiallytobehugenumbersofchildrenmeantthatalotofconcernedindividualsandcommunitiesaswellasdonorshavewantedtosupportthesechildrenthroughtheinstitutionsthatcareforthem.Asaresultofthis,datagatheredonTsunamiaffectedchildrenhadtobeparticularlycross-checkednotonlywiththemanagerandstaffoftheinstitutionbutwheneverpossiblewiththechildrenthemselvesandotherrelevantcarers.CrosscheckingwasalsodonebycomparingdateofplacementintheChildren’sHomeandinformationavailableaboutcarers.Thissortofcross-checkingiskeybut italsoneedstobesensitivetothefactthatthedefinitionaboutwhoisavictimoftheTsunamiisalsonotanexactscienceasdiscussedaboveanditmustbealsorecognisedthatmanychildrenandfamilieswereaffectedbythisdisasterinarangeofways.Insomecaseshowever,moredetailedinformationwasnotavailable,eitherfromthechildhimselforherselfortheManagerandstaffoftheInstitutionandasaresultthedataintheTablesdoesnotalwaystallywiththetotalnumberofchildreninaparticularcategory.


Finally,oneofthebiggestchallengesforthisresearchwasthefactthatitrequirescollectingdatainaveryfluidsituationwherethenumbersofbothChildren’sHomesandchildrenintheHomekeepevolving.ItwasnotunusualfortheresearchtohavecarriedasurveyofoneplaceonlytofindoutthatanewChildren’sHomewasbeingbuiltaroundthecornerorthatchildrenwhichhadbeenregisteredbytheChildren’sHomeasbeingcaredforhadactuallyrecentlyleftorbeenmoved.Atthesametime,oneofthestrikingfindingsofthisresearchistherelativepermanencyofnumbersintheChildren’sHomesas childrenwho leftwerebeing replacedoften immediately.This, togetherwith thelackofadequatedatacollectionandregistrationmadetheresearchquitechallengingintermsoffindingoutthenumbersofchildrenaffectedbytheTsunamithathadactuallygonethroughtheChildren’sHomesorfindingoutwhathadhappenedtothosewholeft.ThisprovidesyetanotherargumentfortheestablishmentofadatacollectionsystemthatadequatelyandregularlyrecordschangesonthesituationofChildren’sHomesandchildrenintheircare.



Part IITheSituationof

theChildren’sHomes(Panti Sosial Anak)

This chapter provides an analysis of the data gathered on the situation of theChildren’sHomesfor‘NeglectedChildren’aswellason‘theHomesfortheDisabled’whichcareforchildreninNADProvince.Itincludesasummaryoftheunderstandingusedintheresearch,numbers,dateofestablishment,ownershipandregistrationstatus,aswellasdetailsofnewChildren’sHomesestablishedsincethedisaster,Children’sHomeswhichweredestroyedordamagedbytheTsunamiand/orearthquakesandChildren’sHomesthatarenolongerfunctioning.ThischapteralsoprovidessomeofthemoreincidentalobservationsthatweregatheredonthesituationofthoseChildren’sHomes.ThelatterarenotprovidedasfindingsbutastheyarenonethelesssignificantastheyprovideafirstsnapshotoftheconditionsoftheChildren’sHomes.


A. Types of Children’s Homes

The research identified 4 types of Homes (Panti) caring for children that areoperatinginAceh:

�. ThePanti Sosial Asuhan Anak(PSAA).Literallyasocialinstitutionforthefosteringofchildren,sometimescalledan‘orphanage’whichfollowtheunderstandingofaninstitutionforneglectedchildrenasdefinedabovebytheMinistryofSocialServices,thoughitisalsoclearthatthesehomescareprimarilyforchildrenwhostillhaveoneorbothparents,someactuallylivinginthevicinityoftheinstitutions.

2. Children’sHomeswhichare locatedwithinaDayah (alsoknownaspesantrenoutsideofAceh-anIslamicboardingschool).AnumberofDayahinNADProvincealsooperateaChildren’sHomeorrefertopartsoftheiroperation/oftheirfacilitiesasa‘Panti’.TheseChildren’sHomesareintendedforchildrenwhoseparentsarepoorandwhoarebenefitingfromtheeducationintheDayahwithouthavingtopayforitorforlivingcosts.TheDayahsareeducationalinstitutionswithadormitory/residentialsystem,howeverwhentheyregisterwithDINSOSbecausetheyalsorunaChildren’sHome,theyarealsorecordedasaSocialOrganization(ORSOS).2�.DayahswhorunaChildren’sHomeusuallycombinethenameoftheDayahbeforeor after the name of the ‘Panti’ but not always. There are also dayahs with aChildren’sHomewhodonotrefertothe‘Panti’intheiractualname.ThenumberofChildren’sHomeswhichactuallystatethattheyareaDayahinAcehis�2andcanbebrokendownasfollows:AcehBesar(�),Pidie(2),AcehUtara(�)AcehBaratDaya(�),AcehSelatan(2),GayoLues(�),AcehTamiang(�),andSimeulue(�).Inaddition4Children’sHomesinAcehUtarausethename“IntegratedIslamicEducation”(PendidikanIslamTerpadu)whichalsoindicatesthattheyareaDayah,bringingthetotalnumberofChildren’sHomesclearlyrecognisedasbeingalsoaDayahto�6.

�. Children’sHomeswhicharesupportingfosteringoutsideoftheinstitutionandinthecommunity,asforexampleinthecaseofPA Permata BundaandPA Yay. Piatu Raja AngkasainAcehSelatanorPanti Tuah Anak YatiminAcehSingkil.

4. ThePanti Sosial Penyandang Cacat,orHomesforPeoplewithDisabilities.Theseare institutionsestablished specifically for the careof both adults and childrendeemedtohavedisabilitieswhethertheyarephysicaldisabilities,sensoryormentaldisabilities.Whiletheseinstitutionsaremeanttocareexclusivelyforthedisabled,asmallnumberofnondisabledchildrenwereidentifiedinsomeofthesefacilitiesandonechildwithdisabilitywaslocatedinaNeglectedChildren’sHome.SomeoftheHomesfortheDisabledarecaringspecifically forpeoplewithonetypeofdisability(�HomefortheblindinPidieand�HomeforpeoplewithmentaldisabilityinBenarMeriah)whileothersarecaringforadultsandchildrenwitharangeofdisabilities.(Theremaining�2institutions)

2�SocialOrganisationsoftenreferredtoundertheacronymORSOSandtogetherasORSOS/LSM(Non-GovernmentalOrganisations)aresocialassociationswhichareestablishedbythecommunity,eitherformallyorinformally,andwhichfunctionasamediumfortheparticipationofcommunitiesinthedeliveryofsocialwelfareinitiatives.Inthiscontextsocialwelfareisunderstoodasallinitiatives,efforts,programandactivitieswhoseaimsaretoshape,establish,takecareof,restoreanddevelopsocialwelfare.(DirectorateGeneralforSocialEmpowermentDepsosRI,200�:2).

A Rapid Assessment of Children’s Homes in post-Tsunami Aceh 2�

Inadditiontotheabove,theresearchidentifiedtwodifferenttypesofpracticesinsomeoftheChildren’sHomes:

�. AnumberofchildrenareplacedintheChildren’sHomesforashortperiodoftime,usuallyfortheschoolingperiod.ThesechildrenusuallycomefromtheimmediatecommunityoutsideoftheChildren’sHomeandstillhavebothparents.Duringholidaysorwhenever theChildren’sHome isnotactive, forwhateverreason,thesechildrensimplyreturntotheirparents.

2. In reverse, somechildrenonlyattend theChildren’sHome inorder toaccessreligiouseducationusuallyintheeveningsbutcontinuetolivewiththeirfamiliesandcommunities.(thisisparticularlythecaseforDayahsthatalsorunaChildren’sHome)

B. Number of Children’s Homes

AccordingtotherecordsprovidedbytheNADProvinceDepartmentofSocialServices(DINSOS),asofthe5thMarch2005,therewereatotalof�82Homescaringforchildrenacross�9DistrictsandMunicipalitiesinNADProvince.Thisincluded�68Homesfor‘NeglectedChildren’and�4HomesfortheDisabled.AlsoaccordingtotheDINSOSrecords,twoDistricts,SimeulueandNaganRayadidnothaveanychildren’shomes.ThefollowingTableshowsthenumberofChildren’sHomeswhichwereidentifiedduringthepresentresearchinMarch2006,includingsomewhichwereidentifiedasmissingfromtheDINSOSdata.

Table 1: Number of Homes caring for Children per District in NAD Province.March 2006

No Name of District/ Municipality

Neglected Children’s Homes Homes for the Disabled All Children’s Homes

Data Dinsos 2005

Panti not in Data Dinsos Not

ActiveTotal

Active

Data Dinsos2005

Not Active

Total Active

Total Not

Active

Total Active

Total AllOld

(<2005)New

(>2005)1 Sabang 1 1 1 12 Banda Aceh 7 5 2 10 3 3 2 13 153 Aceh Besar 8 4 12 1 1 13 134 Pidie 26 1 2 25 1 1 2 26 285 Bireun 8 1 9 2 2 11 116 Lhokseumawe 10 2 1 13 13 137 Aceh Utara 53 2 2 53 2 53 558 Aceh Timur 2 2 2 29 Langsa 3 3 3 310 Aceh Tamiang 1 1 1 111 Bener Meriah 2 1 1 2 2 1 3 412 Aceh Tengah 9 1 1 11 3 3 14 1413 Gayo Lues 8 2 6 1 1 2 7 914 Aceh Tenggara 13 8 1 22 1 1 23 2315 Aceh Singkil 1 1 2 2 216 Aceh Selatan 8 3 1 10 1 10 1117 Aceh Barat Daya 3 1 4 4 418 Aceh Barat 4 1 5 5 519 Aceh Jaya 1 1 1 120 Simeulue - 2 2 2 2

JUMLAH 168 18 17 10 193 14 14 10 207 217


�. ThisTable shows that the total number of Homes that care for children and that are presently operating (Active) in Aceh is 207. This includes�9�NeglectedChildren’sHomesand�4HomesfortheDisabledthatcareforchildren.

2. Fromthe193 Neglected Children’s Homes:

a. �68Children’sHomeswerealreadyontheDINSOSNADlist.

b. �5Children’sHomeswereidentifiedbytheresearchwhichdidnotfigureintheDinsosData.Ofthese,�8Children’sHomeswereestablishedpriortotheyear2005and�7Children’sHomeswhichhavebeennewlyestablishedsincethebeginningofyear2005,aftertheTsunami.

c. �0Children’sHomeswerenolongeroperating(NotActive).ThereasonsforthoseChildren’sHomesnolongeroperatingincluded:someweredestroyedordamagedduringtheTsunami,onewasclosedasaresultofallegationsofabusebytheManagerwhoispresentlybeingprosecuted,othersdidnothavechildrenanylonger,sometransformedintononresidentialplacesforreligiouseducation,andatleastonewasmergedwithanotherChildren’sHome.

�. From the 14 Homes for the Disabled, all were previously recorded in theDINSOSlistandnonewHomeshavebeenestablishedsincetheTsunami.

4. IfthetotalnumberofHomesthatareactiveiscombinedwiththosethatarenolongeractive, thiswouldmakeatotalnumberofHomesinNADProvincethatcareforchildrenof217 including 203 Neglected Children’s Homes and 14 Homes for the Disabled that care for children.

5. ThedataonthenumberofnewChildren’sHomes(i.e.since2005)shouldalsoinclude1 other Children’s Home, the PSBR Meuligo Jroh Naguna in BandaAceh.This facilityexistedandfunctionedpriorto2005asavocationaltrainingfacilityforyoungpeoplewhohavedroppedoutofschoolandthereforealreadywasincludedintheDINSOSlistbutittransformeditselfintoacarefacilityaftertheTsunamistruck.SincethenithascaredexclusivelyforchildrenwhohavelostcarersorwhosecarerscannotfulfiltheirresponsibilityanylongerasaresultoftheTsunami.ThePSBRisexpectedtoreturntoitspre-TsunamifunctionsandthechildreninitscarearetobetransferredtoanewGovernmentChildren’sHomebeingconstructedinBandaAceh.

6. Finally,therearealso2newChildren’sHomesthatareintheprocessofbeingconstructed and which will eventually bring the number of new Children’s Homes established since the Tsunami to 19(or20ifcountingthePSBRasanewtemporaryfacility).ThesearetheRumah Sejahtera Darussa’adahandtheRumah Asuh- The Habibie CentreinDarussalamwhicharebothlocatedinBandaAceh.

7. TheresearchalsoshowsthattheDistricts/Municipalitieswiththehighest number of Children’s Homes are in the Eastern region of Aceh (Pidie, Bireun,Lhokseumawe,AcehUtara,AcehTimur,Langsa,andAcehTamiang)withatotalof113 Children’s Homes.AcehUtarahasbyfarthehighestnumberofChildren’sHomes(55Children’sHomesbutwith2nolongeractive).ThisresearchcouldnotexploreindepththepossiblereasonswhythisregionofAcehhassuchahigh


densityofChildren’sHomescomparedtootherregions(48.67%oftotalnumberofChildren’sHomesinAceh).DiscussionswithbothlocalandprovincialsourcesindicatethatthismaybeacombinationofparticularhighpovertylevelsinAcehUtarawhileatthesametimethepresenceintheareaofanumberofwealthycompanies,particularlyaroundtheextractingindustry,mayprovidesomeadditionalfunding.Itwasalsosuggestedthattheconflicthadasignificantimpactintheareawithconsiderablenumberofchildren,youngboysinparticular,beingplacedintheChildren’sHomesandDayahsfortheirsafety.FurtherresearchisneededinordertounderstandwhethertheseareallfactorsorwhetherthereareotherfactorsthatcanexplainthissignificantdifferenceinthenumberofChildren’sHomes,andinparticulartherelativelyrecentandshortperiodoftimewithinwhichthemajorityoftheseHomeswereestablished.(SeebelowSectionC.Yearofestablishment)

8. FurtherbreakdownofthenumberofChildren’sHomesinrelationtogendershowsthatthereareonly3 Children’s Homes which care exclusively for girls,2Children’sHomesrunbyMuhammadiyah,oneinSabangandoneinBireun,and�Children’sHomeinBandaAcehwhichisbeingfundedbyaMalaysiancharitableorganisation(YayasanPembangunganAnakYatimAntarBangsa).ThenumberofChildren’s Homes which care exclusively for boys on the other hand is 23,inthefollowinglocations:AcehBesar(4),Pidie(4),AcehTenggara(4),AcehUtara(�),Bireun(2),Lhokseumawe(�),AcehTimur(�),AcehTamiang(�),GayoLues(�),AcehSelatan(�)andSimeulue(�).Theremaining�8�Children’sHomesinAceharecaringforbothboysandgirls.Inotherwords,87.44% of Children’s Homes operating in Aceh are mixed, 11.11% care exclusively for boys and 1.45% of the Children’s Homes care exclusively for girls.

C. Year of establishment

�. The time span for the establishment of the Children’s Homes in Aceh rangesfrom1936 to 2006.However,fromthe�96Children’sHomeswhichhaveclearinformation about the year theywereestablished, itwas found that the greatmajoritywereestablishedwithinonlyatenyeartimespanascanbeseenfromthegraphbelow:


2. TheGraphshowsthatdespitetheexistenceofafewChildren’sHomesinAcehasfarbackasthe�9�0s,themajorityofinstitutionswereestablishedrelativelyrecently,with 91.84% of Children’s Homes having been established after 1980.

�. Inaddition,astaggering43.88%ofallChildren’sHomesinNADwereestablished after 2000.ThisconfirmsthefactthatformalChildren’sHomesorinstitutionsarearelativelynewphenomenainAcehandleavesopenthequestionastohowchildrenwithoutcarersorwhosecarerswherefacingparticularchallengeswerebeingcaredforinthepastwithinAcehnesesociety.WeretheDayahstheprimaryresponse to thesecarechallengesorweremostchildren takencareofwithinextendedfamiliesassomehavesuggested?24FurtherresearchisneededandcouldprovidesomeimportantguidanceonpossiblefuturedirectionsforalternativecareintheAcehcontext.

4. ThesituationinAceh Utarainparticular,the district with the most Children’s Homes (55)isparticularlynoteworthyas20oftheseHomeswereestablishedbetween�990and�999andanother26wereestablishedaftertheyear2000.FromthisdatawecanseeasignificantincreasetowardstheuseofformalinstitutionsforthecareofchildreninAceh.

5. ThistrendhasbecomeparticularlyacutesincetheTsunamiwith17 new Children’s homes being established in 2005 and two more in the process of beingestablished.Theseareexpectedtobeupandrunningbymid2006.Inaddition,a numberoforganisationshave reportedplans for thebuildingofmanymoreinstitutionsfor‘Tsunamiorphans’andneglectedchildreninthenearfutureand/oranexpansionofthecapacityoftheinstitutiontheyalreadyrun.Iftheseplansarerealised,therateofestablishmentofChildren’sHomescanbeexpectedtocontinueits increasewithmore than twice as many Homeshavingbeenestablishedbetween five years in 2000-2005 thanduringthecourseof theprevioustenyears.

D. Ownership status

ThedistributionbetweenGovernmentowned andprivatelyownedChildren’sHomesintheProvinceofNADisasdescribedinthegraphbelow:

24InterviewwithMrsFarida,DepartmentofSocialWelfareProvinceofNAD,�7October2005.


�. Thedatashowsthatoutof207Children’sHomes,around5% are owned and run by the Government (4.83%) while95% are owned and run by private organisations (95.17%) including NGOs, Community Based Organisations(CBOs)andreligiousorganisations.

2. Thereare10 Homes caring for children owned by the Local Government in NADincluding9NeglectedChildren’sHomesand�HomesfortheDisabled.ThenumberofChildren’sHomesthatareownedbythelocalgovernmentisasfollows:BandaAceh(2),AcehBesar(�),Pidie(2thatincludes�DisabledChildren’sHomes),AcehUtara(�),AcehTengah(�),AcehTenggara(�),AcehSelatan(�),andAcehBarat(�).

�. Constructioncurrentlyongoing for anew facility, theChildren’sHomeRumah Sejahtera Darussa’adahinBandaAcehisduetobefinalisedduringthecourseof200625,whichwill bring the total number of Children’s Homes owned by the Government up to 11.Darussa’adahisduetoberunbyDEPSOS.

4. TheoverwhelmingmajorityofChildren’sHomesinAceh,207 Children’s Homes, are therefore owned by Non Governmental OrganisationswhichincludeCommunityOrganisations(Ormas),Dayahs,SocialOrganisations(Orsos/Yayasan)includingAssociationsestablishedbynon-governmentalorganisationsandsomesmallerassociationscreatedprivatelybyfamilies.AnumberofSocialOrganisationsownmorethanoneChildren’sHomeinAceh,forexampleMuhammadiyahhas9Children’sHomes,TheHabibieCentrehascurrently2Children’sHomesandanotheronewhichisintheprocessofbeingbuilt.

5. FromthestatusofownershipwealsoseethatanumberofChildren’sHomesarebeingrunthroughorganisationsthatarebasedoutside of NADProvincesuchasTheHabibieCentreandtheYayasanNoordeenwhicharebasedinJakartaorthechildren’shomesthatarebeingsupportedfromMalaysia.

6. Thedatadoespointtoaveryhighlevelofinvolvementfromsocialandreligiousorganisations in theprovisionof social services forchildren throughChildren’sHomes inAceh.This is certainly, inpart, as a resultof the strong importanceattachedundertheteachingsofIslamtothecareofchildrenwhoareorphansandotherchildrenaffectedbypoverty.NeverthelessfurtherresearchisrequiredtounderstandbettertherolesandmotivationsofnongovernmentalandcommunitybasedorganisationsinthedevelopmentofChildren’sHomesinAceh.Inaddition,the important responsibility of the Government, particularly the Ministry ofSocialServicesatthenationalandprovincial level, inensuringqualityofcareinthoseinstitutionsneedstobeconsideredinlightoftherelativelysmallnumberofinstitutionswhichareeitherdirectlyrunbyitordirectlyunderitssupervision.ThekeyissueofgovernmentfinancialsupportfortheseinstitutionsisdiscussedfurtherinSectionK.

25InitialplanswereforittobeupandrunningbyJuly06.InterviewwithMr.BahderJohan,ChairmanoftheTeamforPreparationofDarussa’adah,2�March2006.


E. Status of Registration

AccordingtoDecisionNo50/HUK/2004bytheMinisterforSocialServicesontheStandardizationofSocialCareInstitutions,theseinstitutions “must have proof of their legality from the competent authorities in order to get recognition and professional guidance”.26

The researchprovided a numberof clarifications in relation to theprocessofregistrationofChildren’shomes:

�. Inpractice,ithasbeenunderstoodthatitissufficientforaChildren’sHometoberegisteredtopossessaSurat Izin Kegiatan (SIK)orLetterofAuthorizationforActivities.TheSIKisaformaldocumentofregistrationforSocialOrganisationswhichisprovidedbyDINSOSattheProvincialorDistrictlevels.Theregistrationreferstotheorganisationitselfunderwhichtheinstitutionoperates.Asaresultthere is no system for the registration of the individual institution itself.ThismeansthatthosewhoestablishaChildren’sHomedonotneedtoregisteraslongastheyhaveaSIKnumbershowingthattheirparentorganisationisregisteredasasocialorganisation.

2. TheSIKprovidesevidenceofregistrationandpermissiontooperateasasocialwelfareorganisation.Itincludesonlythenameoftheorganisation,theaddressoftheSecretariat,thenameoftheChairman/Director,theareaandtypesofactivities,andthedateofexpiration.Itdoesnotprovideanyindicationofqualificationorcapacitytooperateasasocialorganisationorforthatmatterauthoritytooperateacareinstitution.TheSIKmustberenewedeverythreeyearbyDINSOSasthecompetentauthority.

�. AmongtheChildren’sHomesthatwereidentifiedthroughthisresearch,32 were found that did not possess a registration number (SIK)fromtheProvincialDinsosDepartmentinNAD,eitherduetothefactthattheyhadbeenrecentlyestablishedorbecausetheyhadneverbeenregistered.7NeglectedChildren’sHomes in theDistrictofAcehTenggara (SouthEastAceh)hadobtainedaSIKfromthesocialauthoritiesatthedistrictlevelonly,asdidoneChildren’sHomeinSimeulue.27

4. AsaresultofusingtheSIKsystemasthelegalbasisonwhichChildren’sHomesareabletooperate,no comprehensive data is available from DINSOS or DEPSOSonthenumber,situationandlocationofChildren’sHomesinAcehasintherestofIndonesia.ItalsoprovidesnobasisforasystemofaccreditationfromwhichthecompetentauthoritiesisabletoassessthecapacityoftheseinstitutionstooperatenordoesitevenenableprovincialauthoritiestoknowwhichinstitutionsarelocatedwithinitsterritoryunlessthatinformationisprovidedtoitbytheDistrictauthorities,whichisoftennotthecase.InthecaseofAcehTenggaraforexample,DINSOSattheProvinciallevelhadnoinformationaboutanyChildren’sHomesinthatDistrictasthesehadonlyreceivedDistrictSIKnumbersandinformationwasnotpassedonattheProvinciallevel.

26StandardizationforSocialCareInstitutions(2004)p.��.BodyforTrainingandSocialDevelopment,MinistryofSocialAffairs.27ForabreakdownoftheChildren’sHomesnotregisteredwithDINSOSNADseeAppendixA.�.


F. The financial situation of the Children’s Homes

Asdiscussedabove,theoverwhelmingmajorityofChildren’sHomesinAcehareprivately runwithonly�0governmentowned institutions.TheGovernmentprovidesassistance to the private Children’s Homes in two ways: financial assistance throughtheDeconcentrationFund (Dana Dekon) andassistance through theSubsidyProgramforAdditionalFoodCosts forSocialCare Institutions(Program Subsidi Tambahan Biaya Permakanan untuk Panti Sosial).

�. TheGovernment’ssupportthroughtheDeconcentration Fund started in 2000followingthedecentralisationprocess.ThebudgetfortheDeconcomesfromtheCentralGovernmentandisdistributedthroughtheProvincialauthorities.NeglectedChildrenareidentifiedasoneofthespecifiedtargetgroupsforassistancethroughthisfunding.Inaddition,streetchildren,childreninconflictwiththelaw,disabledchildrenandtoddlersarealsotargetedthroughthisfund.(Theallocationofthefunds forneglectedandstreetchildrenbegan in2000,children inconflictwiththelawanddisabledchildrenin200�andthefundingtargetingtoddlersstartedin2004.)

2. ThefundismainlyusedtosubsidisetheactivitiesintheChildren’sHomes.AccordingtotheDirectorateforSocialAssistancetoChildreninDEPSOS,financialsupportthroughtheDecon was provided in Aceh for:�,�90neglectedchildrenin2000,2,740 children in 200�; 2,440 children in 2002; 2,7�0 children in 200�; 2,480childrenin2004,�,600childrenin2005,and2,�00childrenin2006.Thetotalamountdisbursedwasasfollows:in200�:IDR2.7billion(US$�00.000);in2004:IDR�.2billion(US$�55,556)in 2005: IDR 4.3 billion (US$ 477,778)andin2006itisprojectedtoremainthesameat:IDR4.�billion(US$477,778).

�. InadditiontotheDeconcentrationFund,the Government Subsidy Program for Additional Food Costs for the Social Care Institutions started in 2001.ThisProgramispartofthegovernmentcompensationfortheriseinthepriceofFuel(BBM)andisaimingtosupportthecontinuationofsocialassistancethroughtheChildren’sHomes.Theassistanceisonlyprovidedtosubsidisethecostoffoodforthosebeingcaredforintheinstitutions,whethergovernmentorprivateones.28.ThisaidisdisbursedthroughthePostOfficesystem.

4. During2005,thisprogramhasreachedacrossIndonesia’s��Provincesand�80DistrictsandMunicipalities.ThetotalnumberofSocialCareInstitutions/Homesthatwerereachedthroughout Indonesiais 4,307 HomesincludingNeglectedChildren’sHomes,HomesfortheDisabled,HomesfortheElderlyandSheltersforHomelesspeople.ThenumberofchildrenwhoreceivedassistanceinIndonesiathroughthissubsidywas�49,050childrenwithmorethanIDR�22.4billion(US$��.6million)beingdisbursed.29TheFoodAssistancegivenperchildamountstoIDR2.250(US$0.25)foraperiodof�65daysorIDR82�.250peryear.(US$9�.25)

28ManualofTechnicalGuidelinesforthedeliveryoftheSubsidyProgramforAdditionalFoodCostsforSocialCareInstitutions(2005)DEPSOSRI.p.�-2.29InterviewwithMr.MulyaJoni,SectionforProgramandInformation,DirectorateGeneralforSocialAssistanceandRehabilitation,DEPSOS,��April2006.


5. InAceh, during 2005,thisFoodAssistancewasprovidedto9.405NeglectedChildren in �59 Children’s Homes.�0 There are over �5,000 children in �9�Neglected Children’s Homes in Aceh, and the Food Assistance is clearly notsufficienttocoverallofthem.Itisonlyreaching59.9�%oftheNeglectedChildrenin 82.�8% of the institutions caring for them. As a result, distribution of theassistanceisrotatedamongalltheChildren’sHomesinNADfromyeartoyearwithsomereceivingitoneyearwhileothersreceiveitthefollowingyear.��

6. InadditiontotheaboveassistanceandspecifictothePostTsunamiAcehcontext, theChildren’sHomesintheProvincearereceivingconsiderablefinancialassistancefromtheBadan Rehabilitasi dan Rekonstruksi (BRR)whichisthemaingovernmentalcoordinatingagencyforthereconstructionofpostTsunamiAceh.The Children’s Homesreceived in 2005 more than IDR 20 billion (US$ 2.2 million), anotherIDR �4billionin(US$�,56million)in2006,andareduetoreceiveanotherIDR�5billion(US$�,67million)fortheyear2007.�2This represents a four time increase in financial aid to the Children’s Homes from the Government in addition to the Food Assistance.TheAidismeanttosupporttheinternaldevelopmentof the institutions, including their rehabilitation, theiroperationalprogrammes, management, income generating activities, schooling equipmentandfoodassistance.Theaid isbeingdistributedthroughtheRehabilitationandSocialWelfareServiceUnitunderDINSOS(Satuan Kerja Pelayanan dan Rehabilitasi Kesejahteraan Sosial NAD)��.

7. Inrelationtothefoodassistance,accordingtoinformationfromtheRehabilitationandSocialWelfareServiceUnit�4,in 2006theBRRwillprovideIDR2,700(US$0.�0)perchildfor270daysoratotalamountofIDR540.000(US$60)perchild.ThisassistanceisbeingprovideddirectlythroughthePostOfficetotheaccountoftheChildren’sHome.ItisunclearatthisstagethroughwhatsystemofmonitoringtheBRRandDINSOSwillensurethatthemoneyisactuallyspentforitsintendedpurpose.

8. The Children’s Homes in Indonesia generally also receiveprivate assistance in the form of funding, building and land,(thelatterparticularlythroughthesystemof“wakaf”underIslamasareligiousduty)fromtheirownorganisationincludingreligiousinstitutions,fromtheprivateresourcesoftheirowner/director,fromindividualsintheircommunitiesandfromtheprivatesector.Accesstothisassistanceisoftendependentonthecapacityoftheindividualinstitutiontoaccesseffectivelyinstitutionswhichmakethatassistanceavailable.Someinstitutionsareabletoaccessarangeofthefundingavailableastheirmanagersareparticularlyproactivewhileothersarechronicallyunderfunded.InthecaseoftheDayahs,accessing the funding available for theChildren’sHomes seems tobe amajormotivationforformallyregisteringtheirinstitutions.Inmanycasestheseinstitutions

�0AppendixSKMensosRINomor:04/PRS-�/KPTS/2005from2�May2005.FoodAssistancewasalsoprovidedfor465DisabledPersonsininstitutionsbutnobreakdownisavailableastohowmanychildreninthoseinstitutionsitreached.��InterviewwithMrsFarida,DepartmentofSocialWelfareProvinceofNAD,�7October2005.�2InformationprovidedbytheSocialDirectoroftheBRR.MrDeRonnieonthe9August2006inBandaAceh.��EmailcorrespondencewithMrYudiSatria,DINSOS,7April2006.�4InterviewwithYudiSatria,�6February2006.


willberegisteredwitharangeofagencies,mirroringthepossibilitiesoffundingsuchastheMinistryofSocialWelfare,theMinistryofReligiousAffairs,andtheMinistryofNationalEducation.

9. IntheimmediatepostTsunamicontext,theenormoushumanitarianoutpouringcominginwitharangeofnewdonorsseekingtodisburseconsiderablesumsofaidhascertainlybeenamajorfactorindrivingupthenumberofnewChildren’sHomesbeingestablished.There isnodoubt,however, thatChildren’sHomeswerealreadyawellestablishedresponsetofamilycrisesandchallengesinAcehprevioustotheTsunami.Inaddition,establishingsuchinstitutionshaslongbeenseen as a key means of channelling aid with a range of motivations, whetherreligious,philanthropicorevenbecauseitissimplyamorevisibleandquickwayofdisbursingassistance.Howeversubstantial new funding has been injected into institutional care responses in Aceh as a result of the Tsunami bothfromtheGovernmentandfromnongovernmentalorganisations,localandinternational.ThefundingfornewChildren’sHomesfromnongovernmentalsourcescameprimarilyfromorganisations inMalaysia,MercyReliefSingapore,Cardi International,butalsonationalorganisationssuchasTheHabibieCentre.Someofthedonorsarebuildingtheirowninstitutionswhileothersfocusonsupportingtherebuildingofinstitutionsdamagedasaresultofthedisaster.

�0.Thelevel of financial supportprovidedbythenon-governmentalagenciesvariesmainlyaccordingtowhethertheyarealocal,anationalorinternationalagency.Generally,itseemsthatChildren’sHomeswhoreceiveonlylocalfundinginAcehhavesubstantially lowerbudgets tooperate incomparisonwith theChildren’sHomeswhichreceive financialsupport fromnationalor internationalagencies,ascanbeexpected.Inrelationtothenewly-establishedChildren’sHomesitwasfoundthatbudgetperchildperyearrangedfrom$470to$2,500,althoughthesedonotnecessarilyreflecttheamountofmoneyactuallyspentonthechildandhisorhercare.Thegovernment-runPSBRhasabudgetperchildperyearofabout$740.Incomparison,TheHabibieCentre’snewChildren’sHomeshaveabudgetofapproximately$�,400perchildperyear.Thesearejustroughestimatesonthebasisofbudgetsperyeargivenbytheseinstitutionsandthenumberofchildrenintheircare.FurtherresearchisneededtoproperlyassesstherealcostofinstitutionalcareintheChildren’sHomesinAceh.

��.Whilethelevelofassistancedependsonthesourceoffunding,most funding is linked to the number of children in the Children’s Homes,particularlychildrenaffectedbytheTsunami.Asaresult,themajorityofChildren’sHomeshavedevelopedregistersidentifyingthesechildrentogetherwithfundingproposalsfordonors.OthersareproposingbuildingChildren’sHomeswithlargercapacityonthebasisthattheywillbeabletofindthechildren.Thereisclearindicationthat this results indamaging recruitmentpractices asno assessments seem to have been carried out on the needs of children and their familiesoralternativewaysof supportingchildrenwithin their families andcommunities.Insteadinstitutionshaveeveryreasontobegoingouttorecruitchildreninorder


toreceivetheaid,andtokeepthesechildrenlongertermwithintheseinstitutions,whetherthesechildrenhaveremainingparentsorwhethertheycouldactuallybesupportedwithintheirfamilies.

G. New Children’s Homes established since the Tsunami

ThenumberofChildren’sHomesestablishedsinceJanuary2005is17. The�7newChildren’shomesareoperational.Theirgeographicaldistributionisasfollows:6inBandaAceh,4inAcehBesar,�inPidie,�inBireun,�inLhokseumawe,2AcehUtara,�inAcehTengah,�inAcehTenggaraand�inSingkil.In addition 1existing government vocational training centre(PSBR)wastransformedtobecomeacarehomeforchildrenaffectedbytheTsunami.AmoredetailedbreakdownofthesituationoftheseChildren’sHomesisasfollows:

�. PSBR Meuligo Jroh NagunainBandaAceh

ThisChildren’sHomeisinfactaunitoftechnicalimplementationofDINSOSNADattheProvinciallevel.IntheimmediateaftermathoftheTsunami,DEPSOSdecidedtousethefacilityandchangeitsfunctionstemporarilytoassistchildvictimsoftheTsunami.Itstartedoperatingassuchonthe�5thJanuary2005.ThenumberofchildvictimsoftheTsunamibeingcaredforinthisChildren’sHomeis�00.Atthetimeofthesurveytherewere54boysand46girlswithanagerangefrom�2-�8yearsold.Ofthose,20stillhavebothparents,�7haveeitherlostordonotknowthewhereaboutsoftheirparents,5�arefatherlessand�0are‘realorphans’.(lostbothparents).AllareenrolledatschoolsnearbytheHomewhetherPrimary,Secondary,orSeniorSecondary.ThemajorityofthechildrencomefromBandaAceh,PulauAceh,andLhoknga.ThechildrenwereplacedinthisinstitutionsoonaftertheTsunamibytheirparents,siblingsorrelativesandmosthavehadsomecontactswiththeirfamilies.�8childrenwhowerecaredforinthePSBRaftertheTsunamihavealreadyreturnedtotheirfamiliesbutwereimmediatelyreplacedbynewarrivals.TheplanisforthePSBRtoreturntoitspreviousfunctionsassoonasthenewRumah Sejahtera Darussa’adah beingbuilt inBandaAcehisreadytooperateandchildrenwillbetransferredtothisnewfacility.

2. Rumah Asuh The Habibie Centre in the Complex Asrama Cut MutiahinBandaAceh(THCCutMeutia)

ThisChildren’sHomewasestablishedon the29March2005and isundertheumbrellaoftheHabibieCentre(THC)whichisheadquarteredinJakarta.Itisintheprocessofbeingregistered.InadditiontotheTHCCutMeutia(aformerschool),TheHabibieCentrehasestablishedanotherChildren’sHomesinAcehBesar(BuengCala,KutaBaruinfrontoftheMosqueandanotheroneisbeingestablishedinBandaAceh(Darussalam,Jl.ArRaniryLorongBaktiNo.4).THCisapparentlyplanningtodevelopanother20Children’sHomesacrosstheNADProvince.ThechildrenintheRumahAsuhinBandaAcehcomefromthedisplaced


personsbarracks.ThestaffoftheinstitutioncontactedthefamiliesinthosebarracksandproposedthattheirchildrenbeplacedintheChildren’sHome.Therearenoplanstoreturnthechildrenpermanentlyshouldtheparentalsituationchangebutthestaffalsosaidthatshouldafamilywantthechildreturnedtheywoulddoso.Thestaffalsostatedthatifthatwasthecase,theywouldidentifyanotherchildtomoveintohisorherplace.ThenumberofChildrenintheTHCCutMeutiais50children,26boysand24girls.48ofthesechildrenareagedfrom6to�2yearsoldand2areagedbetween��and�5.Ofthesechildren,28stillhavebothparents,2arerealorphans(havelostbothparents),6arefatherlessand�4aremotherless.All thechildrengotoschool locallywith40children inPrimaryschooland�0childreninSecondarySchool.�7childrencomefromBandaAcehand��othersfromoutsideofBandaAceh.

�. PA Yayasan Pembangunan Anak Yatim Antar BangsainBandaAceh

ThisChildren’sHomewasestablishedonthe��August2005asaresultofsupport from a Malaysian organisation, Yayasan Pembangunan Ekonomi IslamMalaysia (YPEIM). It is in theprocessof being registered.YPEIM is under theleadership of the Malaysian Prime Minister, and it is also helping other IslamiccommunitiesincludinginPakistanandIndia.YPIEMiscurrentlyalsoplanningtheestablishmentofanotherChildren’sHomewithaproposedcapacityof200childreninthevicinityofBlangBintang.Thepresentfacilityislocatedinaprivatehouseandcaresfor�6children,allgirls,agedfrom6to�8yearsold.5ofthechildrenhavelostbothparentsand��arefatherless.TheyincludevictimsoftheTsunamifromdistrictsoutsideofBandaAcehinparticularCalang,Lamno,Meulaboh,Lhoknga,Pulau Aceh, and Lhokseumawe. The children at school include �0 children inPrimarySchooland5inSecondarySchool.2childrenwerenotatschoolatthetimeoftheresearch,onegirlpermanentlyasshewassaidtosufferfromLeukemiaandanothergirlwasintheprocessofrecoveringfrommajormedicaltreatmentreceivedinMalaysiawithsupportfromYPEIM.TheManageroftheHomeconfirmedthattherewasnoplantoreturnthechildrentotheirparentsshouldtheirabilitytocareimproveandshedidnotencouragecontactwithmothersorothermembersofthechildren’sfamiliesasshefeltthiswouldbetoodisruptiveforthechildren.

4. Rumah Perlindungan dan Rehabilitasi Anak (RPRA)(ProtectionandRehabilitationHome)DaarulAitaminBandaAceh

TheRPRAwasestablishedbyYayasanDaarulAitamonthe�4thFebruary2005.TheaimofthisChildren’sHomesistoprovideprotectionandcareforchildvictimsoftheTsunamithroughprovidingformalandinformaleducationtothechildren.TheRPRA isnotyetregisteredbyDinsosNAD.ThetotalnumberofchildrenbeingcaredforintheRPRAis�7,including��boysand24girls.Thereare��childvictimsoftheTsunami,�victimsoftheConflictand�neglectedchildren.ThechildvictimsoftheTsunamiinclude�0boysand2�girls.Theagerangeisbetween6to�8yearsold.�5ofthesechildrenstillhavebothparents,�haslostbothparentsordoesnotknowtheirwhereabouts,�2arefatherlessand�aremotherless.AllchildrenattendlocalschoolsfromPrimarytoSeniorSecondarylevel.


5. PA Asah, Asih, AsuhinBandaAceh

TheChildren’sHomeAsah,Asih,Asuhisrunbytheorganisation International Humanity Foundation.ThisHomehasalreadybeenregisteredwiththeMunicipalOfficeandisintheprocessofbeingregisteredwithDINSOSNAD.TheInternational Humanity Foundation is operating in Jakarta, Medan, Bali, and also outside ofIndonesiainThailandandAfrica.TheBandaAcehofficeisoneofitsbranches.TheChildren’sHome‘PAAsah,Asih,Asuh’islocatedinaprivatehouseonJl.KreuengWoylaGeucueKompleks.ItbeganrecruitingchildvictimsoftheTsunamiinJune2005andchildrenbeguntostayinthefacilityfromthe�stJuly2005.Atthetimeoftheresearch,theHomecaredfor�5childvictimsoftheTsunami,allofwhichhavelostbothparents(realorphans).TheChildreninclude4boysand��girlsof5to�8yearsofage.Onechildisattendingpre-school,6childrenareatprimaryschool,2childrenareatjuniorhighschooland6childrenareatseniorhighschoolsinthecommunity.Thechildrenareduetostayintheinstitutionuntiltheygraduatefromschool.Onweekendschildrenareencouragedbythemanagertomeetwiththeirrelativeswhoarepresentlylivinginthebarracks.

6. PA Islam Media KasihinBandaAceh

TheChildren’sHomePAIslamMediaKasihwasestablished inBandaAcehon the26February2005. It is located in theSetuihamlet in thesubdistrictofBaiturrahman.ThisHomeisoperatedbytheOrganisation‘YayasanIslamMediaKasih’whichislocatedinJakarta.ItisalreadyregisteredwithDINSOSNAD.Theaimofthisinstitutionistoguideandprovideschoolingforchildrenwhofatherless,motherless,orphanedorneglected.Atthetimeoftheresearchitwascaringfor46children,amongwhich20wherechildvictimsof theTsunami.Of these20children,9areboysand��aregirls.Fivechildrenarebetween6to�2yearsofage,4childrenarebetween��and�5yearsofageand��childrenarebetween�6and�8yearsofage.Allchildrenattendlocalschoolswith5childreninprimaryschool,4injuniorhighschoolsand.and��inseniorhighschool,9ofthechildvictimsoftheTsunamistillhavebothparents,4donotknowthewhereaboutsoftheirparents,4havelostbothparents,2arefatherlessand�ismotherless.

7. PA Anak Yatim Tsunami MalakainAcehBesar

This Children’s Home was established on the 22 December 2005. It wasestablished through support from the Sultanate of Malacca in Malaysia. TheChildren’sHomeisnotyetregisteredwithDinsosNAD.All�8children(allboys)inthathomearevictimsoftheTsunami.Theagerangeisbetween6and�2yearsand all are attending local schools atprimary level. 2of the children still havebothparents,6havelostparentsordonotknowtheirwhereaboutsand�0arefatherless.8ofthechildrencomefromAcehBesarandtheremaining�0comefromoutsideoftheDistrict.


8. PA Asrama Anak Yatim JohorinAcehBesar

This Children’s Home was established on the 28 February 2005. It wasestablishedthroughsupportfromAMNOJohorinMalaysia.ThisChildren’sHomeisalreadyregisteredbyDinsosNADsincethe�February2006.Thetotalnumberofchildren in itscare is25,allboys, including�8victimsof theTsunamiand�victimsoftheconflict.Theremaining4childrenincareareneglectedchildren.Theagerangeforallchildrenisfrom6to�2yearsoldandtheyareallattendinglocalschoolsatprimarylevel.�0ofthechildvictimsoftheTsunamistillhavebothparentsand8arefatherless.

9. Rumah Asuh The Habibie Centre Complex Asrama Bueng CalainAcehBesar

ThisChildren’shomewasestablishedbyTheHabibieCentre,basedinJakarta,on the26November2005. It isnotyet registeredbyDinsosNAD.The totalnumberofchildreninitscareis�00with50boysand50girlswhoareallvictimsoftheTsunami.Theagerangeforthemajorityofchildrenis6-�2years(88children)andtheremainingarebetween��and�5yearsofage.Allchildrenareattendinglocal schoolswith89atPrimaryschool leveland therestatSecondaryschoollevel.4�childrenstillhavebothparents,�2havelostbothordonotknowtheirwhereabouts,�7arefatherlessand�0aremotherless.

�0. Orphans InternationalSumaterainAcehBesar

ThisChildren’sHomewasestablishedonthe�6thApril2005.Ithasyettoberegistered.ItwasfoundedspecificallytocareforandprovideeducationfororphanedchildrenaffectedbyTsunami.ThisHomeisundertheYayasan Orphans International SumaterawhichisanaffiliateofOrphans International Worldwide basedintheUS.Thetotalnumberofchildrenpresentlyinitscareis�2with9boysand�girls.Themajorityofchildrenare��–�5yearswithonechildunder�2yearsold.AllchildrenareorphansandcomefromtheareaofAcehBesar(9)andBandaAceh(�).Thechildrenareattendinglocalschoolswith��childreninsecondaryschoolandoneinprimaryschool.TheHomehastwocarestaff.

Itprovidesformaleducation,Englishcourses,aworshipprogramme,swimminglessons,andreturntransportationtoandfromtheirfamiliesforvisits.Thischildren’shomehas�unitofboarding,�car,playground,andaroomforstudy.Theyareintheprocessofbuilding2unitsfortheoffice.ItsfundingcomesfromYayasan Orphans International Sumaterawhichstatesonitswebsitethatit isplanningtoextendthisfacilitytobuild60smallhomesfor240childrenon40acresofland.Ithasapparentlysecuredfundingfor�5ofthehomesandiscurrentlylookingforfundingsfortheothers�5.

�5http://www.oiww.org/sumatera/houses.html


��. PA Qoryatul HudainPidie

ThisChildren’sHomewasestablishedon the�August2005. Ithasyet toberegistered.ItwasfoundedbytheformerManagerofPANurulHudaafteraninternaldispute.ThisChildren’sHomecaresfor�52children, including9childvictimsoftheTsunami.(7boysand2girlswithanagerangeof�6to�8yearsoldandattendinglocalschoolsatSeniorSecondarySchoollevel.)AllchildvictimsoftheTsunamihavelostbothparents.

�2. PA Putri AisyiahinBireun

This Children’s Home was established on the 2 January 2005 under theauspicesofAisyiahwhichisapartofMuhammadiahforwomen.IthasnotyetbeenregisteredbyDinsosNAD.Thetotalnumberofchildreninitscareis�0,including8childvictimsoftheTsunamiand2childvictimsoftheconflict.Allaregirls.TheagerangeforthechildvictimsofTsunamiis6to�5yearsoldandtheyareattendinglocalschoolsatPrimarylevelandSecondaryschoollevel.Theyareallfatherless.

��. Yayasan Pusat Pendidikan Anak Nelayan Baiturrahman (HeadAssociation for theEducationoftheChildrenofFishermen(PPANB)inLhokseumawe

ThisChildren’sHomewasestablishedonthe8January2005forthepurposeofassistingchildvictimsoftheTsunami.Thechildrenaresentorcomethroughrecommendationofthepanglima laut(atraditionalassociationoffishermen)andthedirectorofthis institutionishimselfa leaderofapanglima laut.TheHomeis located in a former schoolSekolah Menengah Kejuruan (SMK) – a school forvocationaltrainingatseniorhighschoollevel,inBandaSakti,Lhokseumawe.InitiallytheChildren’sHomesupported82childvictimsoftheTsunamibutatthetimeoftheresearchonly64remainedincluding�9boysand25girls.Theagerangeisfrom6yearsoldto�8yearsoldandallareattendinglocalschoolsatPrimarylevelorSecondarylevels.AtthetimeoftheresearchtheChildren’sHomewasfacingparticulardifficultiesasthefundsfortheinstitutionhadapparentlybeentakenbyaformermanagerwhosewhereaboutsremainedunknown.TheChildren’sHomehadbeenrunforthepasttwomonthsbyvolunteersfromJakartaandthemanagementoftheHomewasbeingreorganised.TheHomeisyettoberegistered.

�4. PA Miftahul JannahinAcehUtara(NorthAceh)

PAMiftahulJannahis locatedinTambonTunongvillageintheSubdistrictofDewantara.ThisinstitutionhasbeenregisteredwithDINSOSNADsinceOctober2005.ItbeganoperatinginFebruary2005aftertheIslamicorganisationNahdatulUlamainNADrequestedinJanuary2005thattheorganisation‘YayasanMiftahulJannah’operateaChildren’sHometocareforthechildvictimsoftheTsunami.YayasanMiftahulJannahitselfhasbeenoperatingsince�986.ThetotalnumberofchildvictimsoftheTsunamibeingcaredforinthisinstitutionis58,with40boys


and�8girls(Thetotalnumberofchildreninitscareis80).ThechildvictimsoftheTsunamiarebetween6and�8yearsofage,�8childrenarebetween6and�2yearsofage,27childrenarebetween��and�5yearsofageand�childrenarebetween�6and�8yearsofage.�0areattendingprimaryschool,2�areattendingjuniorhighschooland7areattendingseniorhighschoolinthecommunity.ThemajorityofthechildrencomefromareasofAcehUtarahitbytheTsunami(42children),��childrenarefromLhoksemawe,4fromBireunand�fromBandaAceh.Thechildrencametotheinstitutioningroupswith40childrenenteringinFebruary,�childreninMarch,�2childreninSeptemberand�childreninNovember2005.57ofthechildvictimsoftheTsunamiarefatherlessandonechildstillhasbothparents.

�5. PA Darul Qira’ahinAcehUtara(NorthAceh)

ThisChildren’sHomewasestablishedonthe��March2005andisalreadyregisteredwithDINSOSNAD.TheaimofthisinstitutionistoprovideKoraniceducationandcareforchildrenwhowerevictimsoftheconflict.ThisChildren’sHomecares for�9children including��boysand28girls,alloriginating fromAcehUtara.2�ofthechildrenarefatherless,�ismotherlessand�7childrenstillhavebothparents.��ofthechildrenattendlocalschoolsatPrimarylevel,22atSecondarylevel,and4inSeniorSecondary.Fromthe�9childrenintheChildren’sHome,��arevictimoftheconflictand6arevictimoftheTsunami.ThesixchildrenwhoareTsunamivictimaregirlsaged6to�8yearsold.AllareattendingschoolfromPrimarytoSeniorSecondarylevel.AllTsunamivictimsarefatherless.

�6. Panti Asuhan Yatim Piatu Korban Tsunami Yayasan NoordeeninTakengon,AcehTengah(CentralAceh)

ThisChildren’sHomewasestablishedonthe�0December2005undertheauspicesofYayasanNoordeen,whichisheadquarteredinJakarta.Theconstructionofthebuildingstartedon�June2005andduringthatperiodtheChildren’sHomeprovidedassistanceto5�childvictimsoftheTsunamiwhohadbeenidentifiedbytheDepartmentofEducationintheDistrictofTakengon.Thescholarshipswereprovidedduringtheconstructionandstoppedoncethefacilitywascomplete.Bythe�0December2005,whentheHomewasofficiallyinaugurated,therewereonlyfivechildrenleftasmanyhadreturnedtotheiroriginalhomelocationsincludingBandaAceh,Bireun,andMeulabohwhilesomehadbeenreunifiedwithextendedfamiliesinTakengon.

Atthetimeoftheresearchthenumberofchildreninitscarehadgoneupagainto�6children,including9boysand7girls.Theagerangeisfrom6to�5yearsofageandallattendlocalschoolsatPrimary,SecondaryandSeniorSecondarylevels.�ofthechildrenhavelostbothparents,9arefatherlessand4aremotherless.�6ThisHomehasnotyetbeenregisteredwithDinsosNAD.

�6Bythe2�April2006,thenumberofchildrenstayinginthePantihadincreasedto2�,including�2boysand��girls.EmailcommunicationwiththePantiAsuhanYayasanNoordeen(2�April2006).


�7. PA Al HusnainAcehTenggara(SouthEastAceh)

ThisChildren’sHomewasestablishedonthe26ofAugust2005undertheauspicesofYayasanPondokAlHusna. It isnotyetregisteredbyDinsosNAD.Thetotalnumberofchildreninitscareis46including�5boysand��girls.25ofthechildrenarebetween6and�2yearsoldandareattendinglocalschoolsatPrimarylevel.�5childrenareaged��-�5yearoldandareattendinglocalschoolsatSecondaryleveland6childrenare�6to�8yearsoldandareattendinglocalschoolsatSeniorSecondary.ThechildrenallcomefromthisDistrict.

�8. PA Tuah Anak Yatim AcehinSingkil

Thisinstitutionatthetimeoftheresearchwascarryingoutsupportactivitiesinthecommunityfor20childrenincluding�4boysand6girlswhilearesidentialChildren’sHomewasbeingplanned.Atthetimeoftheresearchthelandwasreadybutconstructionof theresidential facilityhadnot started.ThechildrenattendactivitiesinthemeetinghalloftheMosque(Meunasah).Theseactivitiesincludekoraniceducationintheeveningsandthedistributionoffinancialhelpfromdonors.ThisInstitutionisnotyetregistered.

In summary, from the �7 new Children’s Homes, 9 were established withthestatedpurposeoftakingcareofchildvictimsoftheTsunamiand4Children’sHomeswereestablishedtoassistbothchildvictimsoftheTsunamiandtheconflict,makingatotalof13 Tsunami-related new Children’s Homes. Inaddition4newChildren’sHomeswereestablishedunderthebroaderpurposeofcaringforneglectedchildren.OneofthosewasestablishedasaresultofaninternaldisputewithinaChildren’sHome.

Inaddition, twootherChildren’sHomesarepresentlybeingbuiltwiththeexpectationthattheywill begin operations in 2006:

�. Rumah Sejahtera Darussa’adahinBandaAceh

TheRumahSejahtera(welfarehome)Darussa’adahisamajornewChildren’sHome with 47,629 m2 of land and an expected care capacity of 600 to �000children.Thefacilityisexpectedtoinclude7residentialunitsforchildrenfrom7to�8yearsoldand2residentialunitsforchildrenfrom2–6yearsold,ahouseforstaff,amanager’shouse,atechnicalskillsrooms,apoliclinic,ahallforkoraniceducation,anoffice,anauditorium,aroomforprayers,akitchenwithacanteenandasecuritypost.TheFacilitywassaidtobe90%completedatthetimeoftheresearch.ThisChildren’sHomewasactuallyplannedandbegantobedevelopedwellbeforetheTsunamibytheMinistryofHomeAffairswithaparticularfocusonchildrenaffectedbyconflict.AftertheTsunamihitAcehitwasfeltthatthisfacilityshouldbeaccommodatingbothTsunamiandconflictaffectedchildren.

AccordingtoDEPSOSwhichwillbeinchargeofrunningthefacility,thecurrentplanforDarussa’adahisthatitwillbedividedbetween�differentinstitutions,aChildren’sHome(PSAA),an institutionforthevocationaltrainingofTeenagers


(PSBR)andaChildProtectionHome(RPSA).TheChildren’sHomewillcareforchildvictimsof theTsunamiandtheconflictwhoarestill at school.ThePSBRwillprovidevocational training forasixmonthsperiod forchildvictimsof theTsunamiortheconflictwhoarenolongeratschool.Itwilloperateahostelfortheseyoungpeople.TheRPSAwillprovideassistancetochildrenwhoarevictimsofviolenceandexploitation.Intheinitialstage,200childrenareexpectedtobelocatedthereincludingthe�00childvictimsoftheTsunamithatarenowbeingcaredforinthePSBR Meuligo Jroh NagunainBandaAcehasthisfacilitywillreturntoitspriorfunctionasavocationaltrainingcentre.DINSOSNADhasrequestedthatDEPSOSinJakartatakeschargeofthisfacilityalthoughitwasinitiallyenvisagedbytheMinistryofHomeAffairsthatitwouldundertheauthorityoftheProvincialDepartmentofSocialServices.

2. Rumah Asuh The Habibie Centre, DarussalaminBandaAceh.

ThisChildren’sHomeisthethirdsuchinstitutionbeingestablishedbytheTheHabibieCentre.ItislocatedonJl.ArRaniriLorongBakti,DarussalaminBandaAceh.Thebuildingsareabouthalfcompleted.TheplannedcapacityandtheintendedbeneficiariesforthisChildren’sHomeare�00childvictimsoftheTsunami.

H. Children’s Homes damaged or destroyed in the Tsunami

Theresearchidentified10 Children’s Homes that have been damaged because of the Tsunami and earthquakes.Thisdata,however,isonlypartialandshouldbesupplementedbyothersources,particularlyinrelationtothescaleofthedamage,asthissurveydidnotinvestigateindepththeconditionsoftheChildren’sHomeshitbytheTsunami.Informationgatheredatthetimeofthesurveyonthe�0Children’sHomesisasfollows:

�. PA Ibnu HasyiminBandaAcehdestroyedbytheTsunami.Thisresearchwasnotabletoascertainwhetherthis institution isbeingmovedorwhether itwillberebuilt.

2. PA Al WasliyahinBandaAcehdestroyedbytheTsunami.Thisresearchwasnotabletoascertainwhetherthisinstitutionisbeingmovedorwhetherthereareplansforittoberebuilt.�7

�. YPAC (Yayasan Panti Anak Cacat)inBandaAcehwasalsodestroyedasaresultoftheTsunami.Atthetimeofthesurvey,ithadmovedtoJl.BandaAceh–MedanKm.4.5,VillageofSantanSub-districtInginJaya,AcehBesar.

4. PA Pesantren Darul Hasanah Syeh A. RaufintheDistrictofSingkilhasincurredheavydamageduetotheTsunami.Atthetimeofthesurvey,basicrehabilitationwasunderway.

�7InformationreceivedafterthisresearchwascarriedoutshowedthatthePantiwasbeingrebuiltinadifferentlocation,inLampermaiVillageinBandaAceh,withsupportfromShinnyo-eninJapan.ThenewPantiwasofficiallyinauguratedonthe4June2006(Seewww.acehinstitute.org).


5. PA Ummul YatamainAcehBarathasexperiencedheavydamage.TheChildren’sHome and the children in its care have moved to the Barracks. The buildingwasbeingrebuiltwithsupport fromMercyReliefSingaporeatthetimeoftheresearch.

6. PA MuhammadiyahinAcehBarathasexperiencedheavydamageandisintheprocessofbeingrebuiltwithsupportfromMercyReliefSingaporewithanewexpectedcapacityof80children.(Previouscapacity65)

7. PA Karya Kuta TrienginAcehBaratwasdestroyedandisbeingrebuiltwithsupportfromMercyReliefSingaporewithanexpectedcapacityof�20children.(Previouscapacity60children)

8. PA Anak Yatim Raudatul Yatama Darul HikmahinAcehBarathasexperiencedheavydamageduetotheTsunami.Atthetimeoftheresearch,childreninitscarehadbeenmovedtothebarracksandthebuildingwasbeingrebuiltbyMercyReliefSingapore.

9. PA Suci HatiinAcehBaratwasdestroyedbytheTsunamiandisbeingrebuiltwithsupportfromCARDIInternational.Atthetimeoftheresearchthechildrenwereresidingintents.

�0.PA Al AnsharinAcehJayawasdestroyedbytheTsunamiandisintheprocessofbeingrebuiltinanothervillage,SentosavillageintheSub-districtofKruengSabee.

InadditiontothedestructionoftheChildren’sHomesduetotheTsunami,theresearchalsoidentifiedoneChildren’sHomethathadbeendamagedasaresultoftheconflict,PA Diniyah IrsyadiyahinAcehBaratDaya.ThisChildren’sHomehaschangeditsnametobecomePA Dayah Pesantren Asy Syafiiyah.Atthetimeoftheresearch,thebuildinghadnotbeenrehabilitated.

I. Children’s Homes no longer operating TheResearchidentified10 Children’s homes that were no longer operationalatthetimeoftheresearch.AChildren’sHomewasunderstoodtobenolongeroperationalwhereitnolongerrananyactivities,ithadnomanagerandtherewerenochildreninitscare,ortheHomehadbeendestroyedorhadbeenincorporatedintoanotherone.IndicationsthattheChildren’sHomewasactuallynolongeroperatingwereconfirmedandrecheckedwiththelocalsocialauthoritiesandthelocalforumofChildren’sHomesmanagers.Thisdatahoweverneedstoberecheckedoverthenextfewmonthstoconfirmthat theChildren’sHomehas indeedceasedoperationsand that ithasnotre-startedoperations,asthepresentsurveywascarriedoutoverarelativelyshortperiodoftime.

Of the �0 Children’s Homes which are no longer operational the followinginformationwasgathered:

�. PA Ibnu HasyiminBandaAcehwasstruckbytheTsunamiandtherewasnofurtherinformationaboutitspossiblemoveorrehabilitation.


2. PA Al WasliyahinBandaAcehwasstruckbytheTsunamiandtherewasnofurtherinformationaboutitspossiblemoveorrehabilitation.�8

�. PA Baitul YatamainPidie.ThelocalcommunityaroundthegivenlocationoftheChildren’sHomedidnotknowanythingofthisinstitution.Accordingtoinformationgivenbythelocalcommunity,theManager/owneroftheHomewhosenameisincludedintheDINSOSrecordsdidliveinthatvillageinthepastbutwasnotthemanagerofaHome,onlyatraditionalkoranicteacher.Henolongerlivedthere.Afterfurtherchecksinthewholeareaitbecameclearthatnosuchinstitutionwasknownbythecommunity.

4. PA Nurul HudainPidie.Thisinstitutionnolongerexistsduetotheinternalconflictbetweenthedirectoranditsstaff.ThestafflefttheChildren’sHomeasaresultandestablishedanewHome,PA Qoryatul Hudainalocationnearby.ThechildreninthecareofPanti Nurul HudamovedtoPanti Qoryatul Huda.AsaresultPA. Nurul Hudanolongerhasanychildreninitscareandisnolongeroperating.

5. Yayasan PA Raudhatul JannahinAcehUtara(NorthAceh).AtthetimeofthesurveytheHomenolongerhadamanagerorchildreninitscareanditwasoperatingonlyasaplaceforreligiousstudiesforchildrenintheevenings.

6. Yayasan Peduli Bangsa PA Darul ArafahinAcehUtara(NorthAceh).AtthetimeofthesurveytheHomenolongerhadamanagerorchildreninitscareanditwasoperatingonlyasaplaceforreligiousstudiesforchildrenintheevenings.

7. Yayasan PA Bener MeriahinBenerMeriahwascloseddownasaresultofallegationsofsexualabuseagainstchildreninitscare.TheManagerispresentlybeingprosecuted.Noclearinformationwasavailableaboutthewhereaboutsofthechildrenbuttheyaresaidtohavereturnedtotheirfamilies.

8. PA Nurul YakininGayoLuesisactuallyaHomefortheelderlyandnotchildrenasrecordedintheDINSOSrecords.

9. PA Yayasan Khairul UmmahinGayoLues.TheChildren’sHomewasnotlocatedattheaddressgivenbytherecordsofDinsosNAD.StaffofthelocalsocialofficesintheDistrictofGayoLuesstatedthatthisHomedidnotexist.

�0.Yayasan Penyantun Islam Syeh Abdul GaniinAcehSelatanwasincorporatedunderYayasan Penyantun Islam Syeh Abdul Gani Darul Alimin Jadid.Thefirstinstitutionhadbeenmanagedbythefatherandthesecondwasmanagedbyhisson.Whenthefatherdied,bothHomeswerebroughttogetherunderthemanagementoftheson.ThebuildingsbelongingtothefirstinstitutionsarenowbeingusedasaDayah.

J. Issues encountered about the Children’s Homes, their practices and care provision.

Asdiscussedabove,thisresearchdidnotattempttocarryoutathoroughassessmentofthequalityofcareprovidedortheconditionsofthefacilities.Theresearchteamwasasked,however,torecordgeneralobservationsthatmaybeusefultounderstand

�8Ibid�8.


thepresentsituationoftheChildren’sHomesinAcehandpossible issuesthatwillneedtobeassessedmorethoroughlyinfollowupresearchonthequalityofcareforchildrenininstitutions.Someoftheobservationsmadewereasfollows:

1. Geographical location. ThelocationofthemajorityofChildren’sHomesisinthemiddleofcommunitiesratherthanoutside.AsaresultcommunitiestendtobeawareofthepresenceoftheChildren’sHomesandevenoftheiractivities.OnlyafewChildren’shomeswerelocatedonmajorroadswithamajoritybeinglocatedinsidethevillageortown.TheroadsonwhichthemajorityoftheChildren’sHomesarelocatedareaccessiblebyvehicleswhethercarormotorcyclesalthoughinafewlocationstheroadswerenotcoveredwithasphalt,inpoorconditionandinsomecasesoverrunbyvegetation.InAceh,theterritoryencompassedbyvillagesandsub-districtstendstobeverywideandasaresultreachingalloftheChildren’sHomesdoesrequireinmanycasesmanyhoursoftravel.

2. Generallythemanagement and the provision of services providedbytheChildren’sHomeswerebasicandcenteredarounditsDirector/Manager.TheManageroftheChildren’sHomeisactuallyinchargeofthemajorityofactivities,aswellasadministration,finance,andthekeepingofthedataonchildren.Staff,ontheotherhand,werealmostneverabletoprovideanyinformationonthesituationofthechildrenanditwasvirtuallyalwaysnecessarytowaittospeaktotheManageroftheInstitutioninordertofindoutanythingaboutthechildrenintheChildren’sHomes.Thiswasnotasaresultofconcernforconfidentialitybutratherasaresultofthefactthatthemajorityoftheseinstitutionshaveactuallyveryfewcarestaffandthatthemajorityofstaffarelogisticalstaff,cook,driver,securityguard,cleaneretc.Thenumberofcarestaffwasgenerallyverylowinrelationtothenumberofchildrenbeingcaredforandfewhadreceivedanyspecializedtraininginchildcareorchilddevelopment. In theGovernmentownedChildren’sHomesandtheHomesrunbythemodernDayahsorbyMuhammadiah,therewasaclearerdivisionbetweenthemanagementoftheHomesandthecarefunctions.

3. General approach. WhilethefacilitiesandtheservicesprovidedbytheChildren’sHomeswerebyandlargebasic,itistobenotedthatmostHomeswereopentothepublicandtherewasageneralfeelingofopennessaboutthemwhichisnotalwaysthecaseininstitutionalcare.WhiletherewereafewinstanceswherepersonalinterestandfinancialgainseemedtobeamajormotivationforthepresenceoftheChildren’sHomes,ithastobesaidthatonthewholetheseinstitutionswererunwithaclearbeliefthattheywerehelpingchildrenandcarryingoutanimportanthumanitarianandreligiousfunction.(ItisworthnotingthatinAcehallChildren’sHomesownedorrunbynon-governmentalorganisationsareofIslamicfaith.)Inafewcases,theManageroftheHomehadshownparticularcommitmenttowardsthechildren inhisorhercare,and inonecase inparticular theManagerhadopenedBankAccountsforeverychildinhiscareinordertodepositthemoneythathadbeencharitablygivenforthechildren.Thechildrenareinthiswayabletosavemoneywhichtheywillbeabletoretrieveuponleavingtheinstitutionorwheneverneedmayarise.


4. The technical staff from the Children’s Homes mainlycamefromaneducationalorreligiousbackground.Therewereveryfewwhohadabackgroundinsocialwork,psychologyorotherrelevantprofessions. Therewereclearcapacitybuildingneedsinparticularinrelationtochildcarebutalsomanagement.

5. Documentation.TheChildren’sHomesonlyhadthemostbasicdocumentationandinformationsysteminrelationtothechildrenintheircare.Themajorityhadabasicregisterwithnameofchildren,age,gender,levelofeducation,andgeneralreason forbeing in theHome,usuallyunder thecategoryofNeglectedChild,Poverty,OrphanandinsomecasesconflictorTsunami.Someoftheinstitutionshadslightlymoredetailedinformationinrelationtothenameandaddressoftheparents/carers, the parental status and when the child entered the institution.Thosewhohadsubmittedfundingproposalstodonorshadinsomecasesphotosofthechildrenandtheinstitution.Themaindocumentationavailableapartfromthisbasicregisterrelatedtotheinformationrequiredtoformalisethestatusoftheinstitutionandtoreceivefunds,inparticularfromtheGovernment.ThatincludesacopyoftheSIKwithbasicdetailsabouttheinstitution,theActofNotary,basicinformationabouttheManagerandstaffandageneralreportofactivitiesbytheHomeaswellasabasic financialreport.Noneof theChildren’sHomeshadacasefileorcasemanagementsystemalthoughinsomecasestheManageroftheinstitutionactuallyhadquitealotofpersonalknowledgeabouteachchild.Generally,itwasclear that informationwaskept foradministrativepurposesand to fulfilfundingrequirementsratherthaninordertoensureknowledgeofthechildrenandindividualcareisprovided.InbothAcehUtaraandLhokseumawe,thelocalcommunitysocialworkersorPSM(PekerjaSosialMasyarakat)hadcompiledandupdateddistrictwidelistswithbasicdataforeachChildren’sHome,providingavaluabletoolforDINSOS.

6. ThefacilitiesforchildrenintheChildren’sHomesgenerallyincludedplacestosleepandmattresses,someindormitoriesothersinsmallerrooms,ageneralkitchenandcanteen,placestowash,cleanandWC,aplaceformeetingsandworship.Otherfacilitiessuchasplayareasorsportandrecreationalfacilitieswererarelyseen.ThemajorityoftheChildren’sHomeshadtelephonesalthoughthesetendedtobetheManager’sHandPhone,butveryfewhadFaxorEmail.Byandlarge,theinstitutionsownedbytheGovernment,MuhammadiahormodernDayahhadmorepermanentstructuresincludingbuildings,properbeds,moreextensivecookingfacilities,classroomsandsanitationfacilities.ManyoftheChildren’sHomesownedbyotherprivateandcommunitybasedorganisationshadfacilitieswhichwereverylimited:Buildingsmadeofboardandzincsheets,theroomsweresmall,sleepingareasweregenerallyonthefloorandthesanitationfacilitieswereverybasic.ThemostbasicconditionsintheChildren’sHomesweremetintheDistrictsofGayoLuesandAcehTenggarawhereinsomeoftheChildren’sHomes,thebuildingswereveryoldandmadeofheavilydamagedboards,thesleepingfacilitieswerenotonlyonthefloorbutalsocrampedwithmanychildreninroomsinsomecasesofabout�.5x2.5m.



Part IIITheSituationofChildrenintheChildren’sHomes

ThechildrenincareidentifiedduringthissurveyofallChildren’sHomesinAcehcameunderfourcategories:NeglectedChildren,DisabledChildren,childvictimsoftheTsunamiandchildvictimsoftheConflict.Someofthechildren,ofcourse,belongtomorethanonecategory.

Description of the children in the Children’s Homes in Aceh

ThisresearchsoughttoprovidefirstandforemostapictureofthesituationofchildvictimsoftheTsunamiintheChildren’sHomesinNADsoitgatheredparticularlydetaileddataon these childrenwhile gatheringmorebasicdataon thebroaderpopulationof


childrenintheseinstitutions.ThiswasdoneinrecognitionofthefactthatnocomprehensiveassessmentordatacollectionhadeverbeendonetodateofchildrenintheChildren’sHomesinAcehandthatmostoftheinstitutionsdonotcollectanysystematicdata.Asaresult,athoroughcollectionofallfundamentaldataonthebroaderpopulationofchildrenintheChildren’sHomeswassimplynotfeasiblewithinthistimelimitedresearch.Itwouldrequireacasebycaseanalysisofthe�6,000childrenintheseinstitutions.Suchresearch,though,isclearlyneededinthefutureinordertobetterunderstandwhichchildrenareininstitutionsgenerallyinAceh,whyandwhattheirsituationis.Asitis,thedatagatheredprovides merely an overview of the broader population of children (number, gender,disability)asabackdroptomoredetailedinformationonchildrenplacedintheinstitutionasaresultoftheTsunami.

ThedatacollectedonchildvictimsoftheTsunamiintheChildren’sHomesontheotherhandsoughttoprovideamoredetaileddescriptionofthesituationofthesechildrenfromtwokeyaspects.Firstofalladescriptionofwho these children are:theirnumber,theirgender,theirage,theirlevelofeducation,theirparentalstatus,anydisabilitywhichtheymayhave,thenumberofsiblingsput inthe institutionstogetherandtherelativelocationoftheChildren’sHometotheirhomelocation.Secondly,theresearchsoughttoidentifythe relationship of these children with their parents or any remaining relativesincludingwhodecidedontheplacementofthechildintheinstitution,thetimingofthatplacementandthestatedreasonforthatplacement,thefrequencyofvisitsbetweenthechildandhisorherfamily,whetherthechildknewofthewhereaboutsofhisorherparentsorrelatives,whetherregistrationandtracingthroughtheFTRNetworkhadbeencarriedoutwhererelevant,whetherreunificationhadtakenplaceorwasneededandwhatwasthelikelihoodofthechildreturningtohisorherfamily.Thefindingsfromthedatagatheredoneachofthesevariablesareasfollows:

A. Number and Location

�. Onthebasisofthedatagathered,thetotalnumberofchildrenbeingcaredforinChildren’sHomesinNADProvinceis16,234 children,including9,567boys(58.9�%)and6,667girls(4�.07%).

2. Thetotalnumberofchildrenintheseinstitutionswhoarevictims of the Tsunami is 2,589 or�5.95%ofthetotalpopulationofchildrenintheChildren’sHomes.Ofthose�,470areboys(56,78%)and�,��9aregirls(4�,22%).

�. Thetotalnumberofchildrenwhowereidentifiedasvictims of the conflict is 1,318 children(8.�2%oftotalpopulationinTheChildren’sHomes).Ofthose79�(60.0�%)areboysand527aregirls(�9.99%).

4. ThetotalnumberofchildrenwhoareincareforotherreasonsthantheTsunamiortheconflictis�2,�27including7,�06boys(59.26%)and5,02�girls(40.7�%).

5. Thetotalnumberofchildrenwhoarein the Homes for the Disabled is 541(�.��%ofthetotalpopulationofchildrenintheHomes).�9Ofthosechildren,��2(57.67%)areboysand229aregirls(42.��%).

�9WhiletheHomesfortheDisabledaremeanttobeexclusivelyforpeoplewithdisabilities,theresearchfoundasmallnumberofnondisabledchildreninsomeoftheseinstitutionsandequallyasmallnumberofdisabledchildrenintheNeglectedChildren’sHomes.DuetotheoveralllackofdataavailablefromthePanti,itwasonlyfeasibletoconfirmdisabilityinrelationtotheTsunamiaffectedchildren.Asaresult,thefiguregivenaboveisofthosechildrenwhoareinaHomefortheDisabledratherthanafigureofallchildrenwithanactualdisabilityintheinstitutions.


Table 2: Number of Children being cared for including Child Victims of the Tsunami and Child Victims of the conflict per type of institution and per District/Municipality NAD Province March 2006

No District/Municipality All Children in Care Child Victims of Tsunami

Child Victims of Conflict

Boy Girl Total Boy Girl Total Boy Girl Total1 Sabang 20 20 0 0 0 0 20 202 Banda Aceh 353 312 665 129 160 289 7 6 13

a Neglected Children’s Homes 281 278 559 112 152 264 7 6 13b Homes for the Disabled 72 34 106 17 8 25

3 Aceh Besar 842 397 1239 281 138 419 82 36 118a Neglected Children’s Homes 812 367 1179 279 137 416 82 36 118b Homes for the Disabled 30 30 60 2 1 3

4 Pidie 1,385 1,056 2441 177 91 268 23 37 60a Neglected Children’s Homes 1,379 1,044 2423 177 91 268 23 37 60b Homes for the Disabled 6 12 18

5 Bireun 690 364 1054 137 126 263 16 10 26a Neglected Children’s Homes 604 319 923 135 124 259 16 10 26b Homes for the Disabled 86 45 131 2 2 4

6 Lhokseumawe 741 576 1317 145 87 132 17 17 347 Aceh Utara 2,734 1,969 4703 306 205 511 306 205 5118 Aceh Timur 98 33 131 1 4 5 68 29 979 Langsa 155 122 277 4 7 11 136 105 241

10 Aceh Tamiang 35 35 1 1 18 10 2811 Bener Meriah 45 63 108 6 19 25

a Neglected Children’s Homes 19 21 40 b Homes for the Disabled 26 42 68 6 19 25

12 Aceh Tengah 360 352 712 9 7 16 14 12 26a Neglected Children’s Homes 304 311 615 9 7 16 14 12 26b Homes for the Disabled 56 41 97

13 Gayo Lues 181 100 281 2 2 4 a Neglected Children’s Homes 167 88 255 2 1 3 b Homes for the Disabled 14 12 26 1 1

14 Aceh Tenggara 907 442 1349 1 1 2 8 8a Neglected Children’s Homes 885 429 1314 1 1 2 8 8b Homes for the Disabled 22 13 35

15 Aceh Singkil 147 86 233 41 52 93 16 Aceh Selatan 436 416 852 32 29 61 6 11 1717 Aceh Barat Daya 154 135 289 35 51 86 68 3 7118 Aceh Barat 208 159 367 136 114 250 7 1 819 Aceh Jaya 42 45 87 33 45 78 9 6 1520 Simeulue 54 20 74Total Children in Neglected Children’s

Homes 9.255 6.438 15.693 1.449 1.107 2.556 785 508 1.293

Total Children in Homes for the Disabled 312 229 541 21 12 33 6 19 25

TOTAL FOR NAD PROVINCE 9,567 6,667 16,234 1,470 1,119 2,589 791 527 1.318

Note: Many Districts/Municipalities do not have Homes for the Disabled, as a result, where no clarification on the type of Home is given, the numbers refer to Neglected Children’s Homes.

6. Thereare112 Children’s Homes that care for child victims of the Tsunami in NAD across 17 Districts and Municipalities.ChildvictimsoftheconflictinAceharebeingcaredforin67Children’sHomesinNADacross�7districtsandmunicipalities.ThefollowingtableprovidesabreakdownofbothgroupsofchildrenintheseHomes:


7. ThedatashowsthattherewerenochildvictimsoftheTsunamiinChildren’sHomesinSabangandBenerMeriah,whiletherewerenochildvictimsoftheconflictininstitutionsinGayoLues,AcehSingkil,andSimeulue.

8. The majority of child victims of the Tsunami are being cared for in Children’s Homes in Aceh Utara(5��).Thiscorrespondscertainlytothehighnumberof institutions in that region rather than the impactof theTsunamiasit suffered relatively littledamage fromthedisaster incomparisonwithBandaAceh,AcehBesar,orinparticularthewesternpartofAceh.OtherdistrictsandMunicipalitieshavingparticularlyhighnumberofTsunamiaffectedchildreninitsChildren’sHomesare:AcehBesar(4�9),BandaAceh(289),Pidie(268),Bireun(26�),AcehBarat(250),andLhoksemawe(2�2).Alloftheseareasweredirectlyaffected by the Tsunami. Children’s Homes in other Districts care for smallernumbers(<�00)ofTsunamiaffectedchildren.

9. In relation to child victimsof the conflict, thehighest numberswere found inChildren’s Homes in Aceh Utara (5��), Langsa (24�), and Aceh Besar (��8).OtherDistrictsandMunicipalitiescaredforsmallernumberofconflictaffectedchildren(<�00).

AcomparisonbetweenchildrenwhoareinChildren’sHomesinAcehforotherreasonsthaneithertheTsunamiortheconflicti.e.“otherchildrenincare”,thenumber of child victims of the Tsunami and the number of children who arevictimsoftheconflictinthesehomes,isprovidedintheGraphbelow40.

40ChildrenincareareoftencategorisedbytheChildren’sHomesthemselvesaseither‘povertyfactor’children(factormiskin),orchildrenintheredueto‘lackofcapacity’(tidakmampu)onthepartoftheparents,orinsomecaseschildrenwhohavelostcarers(yatim,piatuoryatimpiatu).Theseareloosecategoriesandchildrenwilloftenfitundermorethanonecategory.Forthepurposeofthisresearch,‘otherchildrenincare’hasbeenusedtomeanchildrenwhoareinthePantiandareneitherTsunaminorconflictvictims.


�0. Thegenderbreakdownshowsthatthereisamajority of boys in the Children’s Homes in all 3 categories,withboysmakingup59.27%ofthepopulationof‘otherchildrenincare’,whilegirlsmakeup40.7�%.InrelationtotheTsunamiaffectedchildren,boyswere56.78%andgirlswere4�.22%.Inrelationtoconflictaffectedchildren,thepercentageofboyswas60.02%whilethepercentageofgirls was �9.98%. The data therefore confirms that more boys are placed intheinstitutionsthangirlswith boys overall making up 58.93% of the total population of children in the Children’s Homes in Aceh and girls making up 41.07%4�.AtthesametimeaslightlyhigherpercentageofgirlswereplacedinthetheChildren’sHomesasaresultoftheTsunamiwhileontheotherhandtherewerefewergirlsintheHomesasaresultoftheconflict.

��. Difference in the gender make up of the total population of children in theChildren’sHomesisalsomorepronouncedinsomedistrictsratherthanothers.InAcehTimur(EastAceh)thepercentageofgirlsintheChildren’sHomesisonly25.�9%.InAcehBesaritis�2.04%andinAcehTenggara(SouthEastAceh)itis�2.76%.InSabangontheotherhandthereisonlyoneChildren’sHomewhichcaresonlyforgirls.

�2. ThehigherpercentageofboysbeingplacedinHomesoverallcouldbeexplainedbythefactthatChildren’sHomes,asotherdatainthisreportindicate,areusedasakeymeansofensuringaccesstoeducationforchildrenwhosefamiliescannototherwiseafford it.Thedifferencecould indicate thatdifferentvalue isplacedoneducationforgirlsratherthanboys,orthatontheotherhandthevalueofgirls’workwithinthefamilyisseenasmoreimportantinacontextwhereadultsarelikelytoneedtogoouttowork.Furtherresearchisneededtounderstandhowdecisionsaremadeaboutplacements forboysandgirls in theChildren’sHomes.

B. Age Range

�. TheagerangeofchildvictimsoftheTsunamiintheChildren’sHomesgoesfroma few months old to above 18 years old.Theyoungestchildidentifiedwas�0monthsoldinaChildren’sHomeinLhokseumawe.Atthesametimeanumberofyoungpeople(��5)above�8yearsofagewhowerealsovictimsofthetsunamiwereidentifiedintheinstitutions,theoldestbeing25.(Themajorityare�9yearsofage)

2. Boysareinthemajorityatallagesexceptintheabove�8categorywheretherearemoregirlsasGraph4shows:

4�ThegenderratioinNADProvinceaccordingtothe2000PopulationCensusis50.�4%menand49.86%womenoraratioof�0�.


�. Amongthe2,572TsunamiaffectedchildrenintheChildren’sHomeswhoseagecouldbeconfirmed,the biggest group is in the 13 – 15 years age range (37.25%),followedbythoseinthe6–�2yearsgroup(�4.76%),the�6to�8yearsoldgroup(22.0�%)andfinallytheabove�8yearsofage(5.25%).

4. The 0-5 year old group is by far the smallest,amountingtoonly0.7�%ofthetotalnumberofTsunamivictimsintheChildren’sHomes.Therecouldbearangeofreasonsforthatrelativelysmallnumberof0-5yearoldvictimsoftheTsunamibeingplacedintheChildren’sHomesincludingthefactthatarelativelysmallnumberof theyoungerchildrenwouldhavebeenexpectedtosurvive iftheirfamilieshadbeenhitbythedisaster.Atthesametime,Children’sHomesgenerallydonotacceptchildren in theircarebelowtheageof6yearsoldasaccesstoeducationisoneofthemajorreasonsforplacementanditstartsat6yearsofage.

5. Overall,thisemphasisonschoolagechildrenisalsoconfirmedinthepopulationof Tsunami Children in the Children’s Homes with the 6 to 15 years old accounting for well over 70% of the total Tsunami Children population in the institutions.Thefact,however,thatyoungerchildrenthanusualarebeingplacedintheChildren’sHomesasaresultoftheTsunamiraisessomeimportantquestionsaboutthecapacityandsuitabilityoftheseinstitutionstocareforsuchyoungchildren.TheGovernmentGuidelineson InstitutionalCare42emphasizetheuseoffosteringwithinafamilialenvironment,albeitthroughtheChildren’sHome, forpre-schoolchildren/under5, recognising theparticularneeds thesechildrenhave for the careof parents.Children’sHomeswho are caring for amajorityofschoolagechildrenandwhichhavelowratioofcarer/childareunlikelytobeabletoprovideorensureadequatefamilybasedcareforyoungerchildren.The situation of these younger children in particular should be reviewed urgently by theDepartmentof Social Services inNADand alternative familybasedcareoutsideoftheHomesshouldbesought.

42 General Guidelines for the Provision of Social Services to Children in Childcare Institutions (2004) DEPSOS. Directorate General of Social andRehabilitationServices,DirectorateofChildren’sSocialServicesDevelopment,ChapterII,p.�2.


C. Schooling and Level of Education

ThedatagatheredinrelationtothestatusandlevelofeducationforchildvictimsoftheTsunamiconfirmtheroleoftheChildren’sHomesinensuringaccesstoeducation.

�. Theoverwhelming majority of child victims of the Tsunami in the Homes are presently attending schoolfromPrimarytoSeniorHighSchool(98.6�%)

2. AmongthetotalnumberofchildvictimsoftheTsunamiintheChildren’sHomesforwhominformationwasavailableoneducation(2,40�),only a small number (33 children or 1.37%), were out of school.Outofthose,�boyswereunderschool age, 2 girls had only finished elementary school, � boys and � girl haddroppedoutofJuniorHighSchooland24girlshadalreadygraduatedfromSeniorHigh School4�. The graph below provides a picture of the situation regardingschoolingforchildvictimsoftheTsunamiintheChildren’sHomes.

�. AllchildrenintheregularChildren’sHomesattend schools in the community and outside of the institution.

4. ChildrenwhoareinaChildren’s Home within a Dayahontheotherhandtendtobeschooledwithintheseinstitutions44.

5. Further research is needed to explore the impact of these Tsunami relatedplacements on local schools, particularly in relation to new major Children’sHomesbeingestablished.Wherenewinstitutionswereestablishedpost-Tsunamiwithlargegroupsofchildren,thiswouldhaverequiredlocalschoolsto‘absorb’thechildrenwithin itsclassrooms.Atthesametime itwouldhaveentailedaninjectionofcashfortheseparticularschoolsasfeesandcostswouldhavebeencoveredforthesenewstudentsthroughtheChildren’sHomes.Did ithaveanimpactonthecapacityoftheseschoolstooperateandprovidequalityeducation

4�The24girlswhohavealreadygraduatedbutarestillinthePantiareallinonePantiinSingkil.TheyarestillawaitingthereconstructionoftheirhomesandarepresentlycarryingoutsometeachingtasksinthePanti.44AccordingtotherecordsoftheProvincialOfficeoftheDepartmentofRegligion,thereare244,4�8childrenstudyinginDayahsinAceh.


andinreverse,willthishaveanimpactonthecapacityofschoolsintheoriginalhomelocationas localchildrenandthefundingassociatedwiththemwillhavebeendisplaced tonewareas? Itmaybe important to carryout such researchtounderstandtheimpactoftheTsunamiontheprovisionofeducationinpostTsunamiAcehlongerterm.

D. Parental Status

TheparentalstatusofchildvictimsoftheTsunamiintheChildren’sHomesrangedfromthosewhostillhadbothparents,thosethatstillhadoneparent(fatherormother),thosewhohadlostbothparents(realorphans)andthosewhodidnotknowthesituationandwhereaboutsofoneorbothparent(s).

�. Thedatafromthe2,4�9childrenforwhomsuchinformationwasavailableshowsthat the overwhelming majority of Tsunami children in the Children’s Homes still have at least one parent (85.37 %).

2. 42.54% of the children still have both parentsandanother42.83%haveoneparentalive,with��.�5%whoarefatherlessand9.67%whoaremotherless.ThisdataissignificantbecauseitshowsthatcontrarytofrequentreportsinthemediathattheTsunamihasresultedinveryhighnumbersoforphans,thenumberofactualorphanswhohavebeenplacedintheChildren’sHomesisactuallymuchsmallerthanreported.

�. Only10.05% of the Tsunami children in the Children’s Homes are real orphans withanother4.59%whodonotknowthewhereaboutsoftheirparents.Evenifitislikelythatmanyofthechildreninthatcategorywillbedeterminedtobeorphansas itbecomes increasinglyunlikely that theseparation isduetolackofinformationabouttheirwhereabouts,thetotalnumberofactualorphanswillcontinuetoberelativelysmallcomparedtothenumberofchildrenwhostillhaveatleastoneparent.ThisdataalsoconflictswiththegeneralperceptionsthatChildren’sHomesareprimarilycaringfororphans.


4. Without comprehensive data available about the situation of children in theChildren’sHomespre-TsunamieitherinAcehorinanotherprovinceofIndonesia,it isnotpossible tocompare thepercentageof realorphans in theChildren’sHomesasaresultoftheTsunamiwithchildrenintheChildren’sHomesforotherreasons. In two Districts however we have slightly more detailed informationabouttheparentalstatusofotherchildrenincarewhichenablesustocomparethetwopopulations45.InAcehUtara,thepercentageofnon-Tsunami affected children in the Children’s Homes who are real orphans is 2.58%. IncomparisonthepercentageofrealorphansplacedintheHomesasaresultoftheTsunamiinAcehUtarais:�.57%.

5. In Lhokseumawe, the percentage of real orphans in the non-Tsunami affectedpopulationis�.4�%,whilefortheTsunamiaffectedpopulationitis�2.�2%.

6. Thesefiguresaregivenonlyasanindication,asmuchmorecomprehensivedataisrequiredtogetthefullpictureoftheparentalsituationofchildrenininstitutions.What these figures do show, however, is that orphans still make up a smallpercentageof the children who end up in the Children’s Homes. It thereforeunderlinestheneedtorethinkterminologyandformorepublicawarenessabouttherealityofchildren in theChildren’sHomestocorrectmisconceptions thattheseinstitutionsareindeed“orphanages”oreventhatthemainfunctionoftheseHomesistocarefororphans46.

7. Anothersignificantfindingfromtheresearchisthehigh percentage of children in the Children’s Homes as a result of the Tsunami who are fatherless(yatim)(��.�5%)comparedtothenumberofchildrenwhoaremotherless(piatu)(9.67%).Furtherbreakdownbygendershowsthatofthosechildren,58.�0%areboysand4�.90%aregirls.IfwecomparewithavailabledatafromAcehUtaraandLhokseumaweaboutthepopulationofotherchildrenintheChildren’sHomes,fatherless children in Aceh Utara from the non-Tsunami population constitute54.68%(44.62%forTsunamiaffectedchildren)and inLhokseumawe5�.�9%(25.60%forTsunamiaffectedchildren).ThiswouldmeanthatwhilefatherlesschildrenconstitutethesecondbiggestgroupofchildrenintheChildren’sHomesas a result of the Tsunami, the percentage is even higher among non-Tsunamiaffectedchildren.

8. Further research is needed to understand the range of reasons which maylead tomorechildrenwhodonothave fathersbeingplaced in theChildren’sHomes.Somearecertainlylinkedtosocio-economicfactorsandinparticulartothefactthatthefathertendstobethemainbreadwinnerinthefamilyinAceh.It is thereforenotsurprising that theTsunamiwouldhavecreatedaparticularchallengeforwidowsintermsoftheirabilitytocarefortheirchildrenandseekfinancial means to support the family in the aftermath of that disaster. Otherfactorsmaybeinvolvedhoweverincludingsocialandculturalones,suchasthe

45RecapitulationfromthedataonchildrenincareintheChildren’sHomesinNorthAceh(AcehUtara)andLhoksamawe.(March2005)M.SyahrilIsmailandMuhammadZein.46InthatregarditisworthnotinganothersetofdataavailablefromtheSUSENAS(Socio-economicSurvey)whichiscarriedoutbytheGovernment’sCentralBureauofStatistics.TheSUSENASiscarriedoutevery�yearsthroughfamilyhouseholdsurveysofasampleofthepopulation.The2002-200�Surveyidentifiedthatonly4%ofchildrenunder�5didnotlivewiththeirbiologicalparentsandthatamongthose,only0.�75%hadlostbothparents.


strongimportanceplacedontheroleoffathersinIslamicculturewhichleadstoafatherlesschildbeingdeemed‘anorphan’,thedifficultyforawidowtoremarryandcontinuetocareforthechildrenofherpreviousmarriage,thedesirabilityofseeingaboyraisedinamaleledenvironment,thehigherlikelihoodthatthechildrenofawidowerwhoremarriesaretobecaredforbythestep-motheretc.ResearchisneededtoidentifyifandhowsomeofthesefactorsarepresentinthedecisiontoplaceafatherlesschildintheChildren’sHomesmorefrequently.

9. Whatisclearfromthisresearch,though,isthatthehighnumberofsingleparentswhoareplacingchildrenintheinstitutionsunderlinestheneedforspecificsupportanddirectinterventionsbothofasocialandfinancialnaturetotheseparentsiftheyaretocontinuecaring fortheirchildrenand if furtherseparation is tobeprevented.

�0. Finally, it is also important tonote that111children placed in theChildren’sHomes still do not know the whereabouts of both parents. A year after theTsunami, there isahigh likelihood that thoseparentshavediedbutbearing inmindthefactthatmanychildrenintheChildren’sHomeshavebeenlocatedquitefarfromtheirhomelocationandlittletracingsupporthasbeenavailable,moreinformationisneededbeforethesechildrencanbedeterminedtobeorphans.

E. Disability

�. ThetotalnumberofchildrenintheHomesfortheDisabledinAcehis541.

2. Theresearchidentified33 child victims of the TsunamithatwereinaHomefortheDisabled.Outofthe��,�0hadadisabilityand�childrenwereplacedintheseinstitutionsbuthadnorecordeddisability.

�. Inaddition,onegirlcategorisedasmentallydisabledwasidentifiedinaNeglectedChildren’s Home in Langsa. The total number of child victims of the Tsunami with a disability in Aceh is 31.

4. Thetypesofdisability identified includedphysicaldisability,blindness,deafandmute,andmentaldisability.

5. Only1 childintheChildren’sHomesinAcehwasidentifiedasdisabledasaresultoftheTsunami,a�9yearoldboywhoasaresultofbeingcaughtintheTsunamihaslosthislefthandandisalsosufferingfromlossofvision.OtherchildrenweredisabledpriortotheTsunami.

6. TheChildrenwerelocatedinChildren’sHomesacross4Districts/Municipalities,BandaAceh(25),AcehBesar(�),Bireun(2),andLangsa(�).

7. Tsunamiaffecteddisabledchildrenconstitute1.20% from the total number of child victims of the Tsunami in the Children’s Homesand5.7�%fromthetotalnumberofchildrenwithdisabilitiesintheChildren’sHomesintheProvince.ThefollowinggraphprovidesabreakdownofthesituationofchildvictimsoftheTsunamiintheChildren’sHomeswhohaveadisability:


8. UnlikenondisabledchildrenwhowereoverwhelminglyplacedintheChildren’sHomesasadirectresultoftheTsunami,mostdisabledchildrenaffectedbytheTsunamiwerealreadyinaChildren’sHomebeforetheTsunamihit.TheybecamevictimoftheTsunamiwhentheChildren’sHomeinwhichtheylivedwashit.Asmallnumber(2)werelivingwiththeirfamiliespriortotheTsunamiandwereplaced in the Home as a result of the impact of the disaster on their carers’capacitytocope(bothlosttheirfathers).Almostall(��)wereplacedintheHomebyaparent.

9. The surprisingly small number of children who have suffered a disability asa direct result of the Tsunami in the Children’s Homes in Aceh raises someinterestingquestionsbut furtherresearch isneeded inorder toanswer them.WerefewchildrenactuallydisabledasaresultoftheTsunami?Thiscouldwellbethecasebasedonthescaleofthedisaster,aschildrenweremorelikelytobekilled immediatelyratherthansurvivewithadisability.Orwerethesechildrenmorelikelytobetakeninbytheirfamilies?Thisisalsoapossibilityalthoughonewouldthenhaveidentifiedsomeofthesechildrenamongthoseinthedisplacedpopulationinthecampsandbarracks.

F. Number of siblings

NotallchildvictimsoftheTsunamiintheChildren’sHomesarethereontheirownasabout5.�7%hadoneormoresiblingswiththem.��2childrenhadoneortwosiblingsinthesameinstitutionand27hadthreeormore.Boyswereconsiderablymorelikelytohave�or2siblingswhilegirlswereslightlymorelikelytohave�ormoresiblingsinthesameinstitution.Unfortunately,duetothelackofgeneraldataonthepopulationofchildrenincarebeforetheTsunami,itisnotpossibletocomparethesefigurestoidentifywhetherpatternsofplacementwithinfamilieshavechangedduetothedisaster.Itwouldbeuseful to identifywhether familieswhowouldotherwisehaveused theChildren’sHomestorelieve financialpressuresbyplacingonlyonechild,or toensureaccess toeducationforonechild,arenowusingtheChildren’sHomesasanalternativetocareforalloramajorityoftheirchildren.Suchinformationshouldbesoughtinamorequalitativeassessmentas,bearing inmind the scaleof thedisasteron families’ capacity tocope,it would not be surprising to see families having placed a greater number of siblingstogetherintheChildren’sHomes.


G. Location of Home

�. ThemajorityofchildvictimsoftheTsunami(71.80%) came from the same District/Municipality in which the Children’s Home is located.Thisprovidesanimportantinsightintothepatternofmovementofthesechildrenintheaftermathof theTsunamiand itshowsthat,byand large,childrenwereplacedrelativelyclosetotheiroriginalhomelocation.Thismaywellbeanimportantfactorinthehighnumberofchildrenwhoretainrelationshipswiththeir familyonceplacedintheChildren’sHomes,ascanbeseenfromthedatabelow,althoughwhetherthiswasaprimaryfactorinthedecisionofplacementbytheparentsneedstobeinvestigatedfurther.

2. ThereissomeevidencethatpriorrelationshipsbetweencommunityleadersorfamiliesandtheManagerofthe institutionwerea factor indecidingtoplaceachildinacertaininstitution,forexample,groupsofchildrenfromPulauAcehhavebeenplacedinaPanti/dayahasaresultofsuchpriorlinks.Itmayalsohavebeenthat in the immediateaftermathof theTsunamiand thedifficultconditions fortransportandcommunications,parentsandrelativessoughttheclosestinstitutiontoplacetheirchild.

�. However, a significant number of children were placed in institutions outside of the District of home location (28.20%)includinginareasfarawayfromtheirhomes.Inaddition,thefigureforchildrenplacedininstitutionsoutsideoftheDistrictwheretheirhomeislocatedshouldbetakenasaguideonlyatthisstageasitisknownthatsignificantnumbersofchildrenhavealsobeenplacedininstitutions inMedan, Jakartaandotherregionsof Javaasmentionedabove. InonesingleChildren’sHomeinMedanforexample,thereareover2�0childrenplacedthereasaresultoftheTsunami.

4. Aceh Besar in that regard isparticularlynoteworthy as itsChildren’sHomescareforsignificantlymore children from other Districts than from its own(2�8fromoutsideoftheDistrictand�99fromwithin).AnotherDistrictwhose


Children’sHomesalsohousesignificantlymorechildrenfromoutsidetheDistrictis Aceh Barat Daya (7� from outside the District and �2 from the Districtitself).Banda AcehhassignificantnumbersofchildrenplacedtherefromotherDistricts.(�2�fromoutsideoftheDistrictcomparedto�50fromwithin).IfwecomparewithBireunwhichhasroughlythesamenumberofChildren’sHomesasBandaAceh,thedifferenceisclear(2�4childrenfromwithinBireunwith29fromotherDistricts)with88.97%ofchildvictimsoftheTsunamiinBireunhavingcomefromthatDistrictcomparedto54.94%ofchildvictimsoftheTsunamiinBandaAcehhavingcomefromwithintheDistrict.ConsideringthatAcehBesarandBandaAcehwereamongthoseareasworstaffectedbytheTsunami,therecanbenodoubtthatthehighnumberofnewinstitutionsthathavebeenbuiltsincetheTsunamiinthetwoDistricts(�0outof�7)musthavehadanimpactontheirabilitytoattractchildren.AccesstoaidmustalsohavebeenafactorwithBandaAcehasthecapitalofNADbeingatthecentreofmostaidactivities.Thehighnumberofchildrenplaced inChildren’sHomes inAcehBaratDaya fromotherDistrictsislikelytobeduetothemassivedestructionintheareasfurthernorthofitonthewesterncoastofAceh.

5. ThechildrenwhocomefromoutsidetheDistrictwheretheChildren’sHomeislocatedarelikelytohavebeenbroughtbytheirfamilyorrelativesfromanareaparticularlybadlyhitbytheTsunamitowhatwasdeemedasaferarea.ThereisindeedevidenceofchildrenbeingsentquitefarawayfromthecoastincludingasfarasAcehTengahandAcehTenggara.Itisalsopossiblethatinsomecases,thefamilyorrelativesactuallyoriginatesfromtheotherareaandthatthechildwasbroughtthereasaresultoftheTsunamiandsubsequentlyplacedinaChildren’sHomewhenthefamilyfeltthattheywereunabletocareforthatchild.WhenwetakeintoaccountthefindingsaboveandthefactthatchildvictimsoftheTsunamiwereidentifiedinChildren’sHomesacross�7Districts,itisclearthattherehasbeenquitesubstantialdisplacementofthesechildrenacrossDistricts.


H. Decision Maker for Placement

One important piece of information needed to understand better the patternofinstitutionalisationofchildrenasaresultoftheTsunamiistheidentityofthepersonwhotookthedecisiontoplacethechildintheChildren’sHome.Thisquicksurveycouldonlygatherinformationaboutthepersonwhoisdeemedtohavemadethedecisionandclearly,morequalitativeresearchisneededwithfamiliestounderstandhowandbywhomsuchcrucialcaredecisionsaremade.Stillitwasfeltthatitwasimportanttoidentifytheformaldecisionmaker,particularlyinthisPost-TsunamicontextasitwouldhelpidentifycasesofsecondaryseparationwhereparentsorprimarycarersdidnotgetseparatedasaresultoftheimmediateimpactoftheTsunamibutasaresultofthatdisaster’simpactontheirabilitytocareforthechild.

�. Thedatashowsthattherewereanumberofdecisionmakersintermsofplacementincludingtheparent(s)ofthechild,thechildhimselforherself,siblingsorotherrelatives,officialsfromgovernmentagenciesorthemanageroftheinstitution,aswellasNGOsorcommunitymembers.

2. Forthe2,�62childrenforwhomdatawasavailable,itwasfoundthatparents (one or both) were in the great majorityofcasesresponsibleforthedecisiontoplacethechildintheHome(72.�5%).

�. This was followed by other family members or relatives including elderbrotheror sister, grandparent, uncleor aunt etc.which represent 25.19% ofdecisionmakers.

4. Amuchsmallernumberhadbeenplacedasaresultofadecision by an officialincludingsocialworkerorothergovernmentworkeroreventheManageroftheinstitutionitself,usuallywhencarersorrelativeswerenotfound (2.07%).

5. Onlyin2caseswasitfoundthattheplacementdecisionwasmadebyacommunitymemberoranNGO(0.08%).

6. Finally7childrenwereidentifiedwhohadcomeunaccompaniedtotheChildren’sHome(0.30%),mainlydirectlyintheaftermathofthedisasterwhentheyfoundthemselveswithoutcarers.


7. The data therefore shows quite clearly that the decision to place a child inthe institutionwasoverwhelminglymadeby the immediate familyof thechild(97.54%). This is not surprising considering the findings about the parentalstatusofchildrenwhichshowthat85.�7%ofchildvictimsoftheTsunamiintheChildren’shomehaveatleastoneparentalive.

I. Timing of Placement in Children’s Home

Data on the timing of the placement, or when the child was placed in theChildren’sHomealsoprovides important insightastowhethertheplacementwasanimmediateresponsetotheimpactofthedisasterorwhetheritwassometimebeforethecaredecisionwasmade.Thedatacollectedrelatedtotwosimpleperiodsoftime,‘immediate’or ‘not immediate’. ‘Immediate’wasdefinedasamatterofhoursordaysafterthedisasterstruck,while‘notimmediate’referredtoaweeksormonthssincethedisaster.(Notethatdataonthiswasonlyavailablefor2,06�children)

�. Thedatashowsthatwhilea majority of children were placed immediately after the disaster (53.47%), a considerable number were actually placedsome time after the disaster itself (46.53%).Thisindicatestheinterplayofdifferentfactorsintermsofthedecisiontoplaceachildintheinstitution,withlaterplacementsmore likely to be the result of the impactof thedisasteroncarersandfamilies’abilitytocareforachildduetolossofearnings,employment,housingetc.ratherthanimmediatelossofcarers.

2. If takentogetherwiththefindingsontheparentalsituationabovewhichshowthattheoverwhelmingmajorityofchildvictimsoftheTsunamiintheChildren’sHomesstillhaveatleastoneparentifnotboth,wecanconcludethatsecondaryseparation,orseparationasaresultoftheimpactofthedisasteronthecapacitytocareratherthanlossofcarers,isamajorissueinpostTsunamiAceh.


�. Atthesametime,thedataalsoconfirmsthatChildren’sHomesareviewedasimportant ‘survival mechanisms’ for communities who are facing situations ofemergency. The fact that so many families relied on Children’s Homes in theimmediateaftermathofthedisastertocareforoneormoreoftheirchildrenalsoconfirmstheroletheseinstitutionsareseentoplayalthoughthiscouldwellbeasaresultoflackofalternativesorfamilysupportschemes.ItwillbeimportanttocomparethisdatawiththedatathatwillbecollectedfromtheSurveyofDayahs,asDayahsareunderstoodtoplayacrucialroleintermsofcommunityresponsestodisastersandotheremergenciesinAceh.

J. Length of placement in the Children’s Home

ThedataonthelengthofplacementprovidesfurtherinformationonthetimingoftheplacementbutalsoonthetrendinrelationtotheplacementofchildvictimsoftheTsunamiintheChildren’sHomes.ThefollowingGraphshowsthelengthofplacementintheChildren’sHomebrokendowninthreemonthsperiodstartingfromJanuary2006ormorethan�0+monthsaftertheTsunami.

�. Thedatashowsthatwhileplacementwasoftennotimmediateasidentifiedabove,themajority of child victims of the Tsunami were placed within the first 3 months of the disaster,with 75.92% of childrenhavingbeenplacedintheChildren’sHomesforover�0months.

2. ThesteepdecreaseintermsofchildrenwhohavebeenintheChildren’sHomesfor 7-9 months shows that reliance on the Children’s Homes decreased enormously after the peak first few months (6.46%).

�. It increased again within the 4-6 months period which would have beentheJuly-September2005period(��.29%).Theincreaseissignificantalthoughclearlynottopreviouslevels.ItisworthnotingthatJulyisthebeginningoftheSchoolyearinIndonesiaalthoughfurtherandlongertermresearchisneededtoconfirmacorrelation.


4. It settled down again (6.23%) in the three months previous to the research.

5. Thisdataindicatesthatwhiletherewasamassplacementofchildrenwithinthefirstfewmonthsofthedisaster,therehasbeenamuchsmalleralbeitcontinuoususeof theChildren’sHomesasanalternativecaremechanismby familiesasaresultoftheTsunami.

6. Itwillbecrucialtocontinuouslygatherdataonthesechildreninordertounderstandthe longer term impactof theTsunamion theuseof institutionalisationand inparticular to identify whether this small but continuous stream of placementsremainsunchangedasthesituationinAcehreturnsslowlytonormal.

7. Thereisalsoapossibilitythat,asfamiliesfindthattheirsituationdoesnotreturntonormalandtheybecomeincreasinglyfrustratedbytheirlackofaccesstobasicservicesandpositiveenvironmentsforthedevelopmentoftheirchildren,thereisanactualincreaseinsecondaryseparationlongerterm.ItwillbecrucialforthoseaimingtostrengthenthecapacityoffamiliestocarefortheirchildrenandpreventunnecessaryseparationtoidentifywhatsupportthesefamiliesneedtocontinuecaringfortheirchildrenastheoverallsituationinAcehislikelytocontinuetobedifficultformanyoftheaffectedpopulationsforsometimetocome.

8. Without proper data showing trends of placement in the Children’s Homesprevioustothedisaster,itisnotpossibleatthisstagetodeterminewhethertheuseoftheseinstitutionsasacarealternativehasincreasedsignificantlyotherthanasamajorresponsetothedisaster.

9. Ontheotherhandthedataonlengthofplacementconfirmsthefactthatonce in the institutions, children have tended to remain.Withtheoverwhelmingmajorityofchildrenhavingbeenthere�0months+,itisclearthattheirplacementwasnotjustashorttermcarecrisisresponsebutalongertermcaredecision.Itis,nonetheless,importanttobearinmindthatayearaftertheTsunami,asubstantialnumberofthedisplacedremainintemporaryaccommodationinthecampsorbarracksandmanyfamilieshaveyettorecovertheirlivelihoodopportunities.Thiscouldexplainwhychildrenhaveremainedintheinstitutions.Atthesametimethedata in termsof schoolinganddiscussionswith the institutions themselvesshowthatitislikelythatthegreatmajorityofthesechildrenwillremainintheinstitutionsuntiltheirschoolingisover(SeniorsecondarySchool),asisthecasefortheotherchildrenincareintheseinstitutions.

K. Frequency of Meeting between the Child and Family

ThedataonthefrequencyofmeetingsbetweenthechildintheChildren’sHomesandhisorherparentsisanimportantindicatorofrelationshipbetweenthechildandhisorherfamily.

�. Oneof thepositive findings fromthisstudy is that theregenerally tendstobesomecontactbetweenchildrenincareinthechildren’shomesandtheirfamilies,althoughthefrequencyofmeetingsseemstodependheavilyontheproximityoftheinstitutionwiththehomelocationbutalsothecapacitytopayfortransportorcommunicationoftheindividualfamily.


2. ThedatagatheredinrelationtoTsunamiaffectedchildrenintheChildren’sHomesasdepictedintheGraphbelowshowsthattheoverwhelming majority of child victims of the Tsunami in the Children’s Homes have had at least one meeting with their parents,with49.87%havinghadonemeetingand45.88%havinghadmorethanonemeeting.

�. 4.26%ofTsunamichildrenintheChildren’sHomesontheotherhandhaveneverhadameetingwiththeirparents.

4. Itistobenoted,however,thatwhilethequestionnaireclearlyrelatedtomeetingswithoneparentorboth(orangtua),itisclearthatinsomeinstancesthistermwastakeninthebroadersensebyinstitutionsasmeaningmeetingswithakeycarer.Thismaygosomewaystoexplainthediscrepancybetweenthepercentageofchildrenwhohavehadsomemeetingswithaparentandthepercentageofchildrenwhostillhaveaparentalive.Theconceptofparent(orangtua) isstillgenerally understood as including both biological parents and theperson whofulfils that primary care function, whether an actual parent or a sibling, uncle,aunt,guardianetc.

5. Thehighpercentageofchildrenhavinghadmorethanonemeetingwith theirparentsorcarersdoesrepresentpositiveevidencethatmanyofthesechildrenretain some relationshipwith their families.This is certainly reinforcedby thefactthat,aswehaveseenabove,ahighnumberofthemareinChildren’sHomesin the same district than where their home is located but it is also importantevidenceofthefactthatplacement inaChildren’sHomedoesnotnecessarilyseverfamilialrelationshipentirely.

6. In the absence of similar data on the frequency of meetings with parents forthe restof thepopulationof children incare, it is impossible tocompareanddetermine whether child victims of the Tsunami are more or less likely tomaintain such relationships than other children in care. As mentioned abovethough, available information about the general population of children in care


seemstosuggestthatchildrenintheChildren’sHomesdoretainsomelevelof relationship with their families. In particular, the all important Lebaran holiday

inIndonesianandIslamicculturewhereeveryoneisexpectedtoreturntotheirfamiliesforaboutaweek,seemstobegenerallyappliedtochildrenintheChildren’sHomes and where funds are available, it seems that children are encouraged(andevensupportedinafewcaseswithfundsfromtheChildren’sHomes)toreturnhomeforthatoccasion.Furtherresearchisneededtoidentifytheactualpercentageofchildrenwhoactuallyhavethemeanstovisittheirfamiliesregularlyorfamiliesthathavethecapacitytovisittheirchildrenintheinstitutionsandthatactuallydoso.

7. Inafewcases,ManagersactuallystatedthattheydiscouragedregularcontactsbetweenthefamilyandtheTsunamiaffectedchild.Inthosecasesitwassuggestedthat this would disrupt the discipline in the Children’s Homes and createuncertaintyforthechild.InonedisturbingcaseaPantiManagersuggestedthatshewouldnotwantthechildrentoremainintouchwiththeirmothers(Mostofthechildreninherinstitutionhadmothersbutnofathers)becauseshehopedthatintimetheywouldforgettheirbloodmotherandseeherastheirrealmotherinstead.Referringtothedesperationfromthesemotherswhowereextremelypoorandcouldnotcarefortheirchildren,sheclearlysawthispermanentbreakinrelationshipasthebestalternativeforthechild.

8. Inothercaseshowever,managersandcarerswerekeentoshowthatchildren,whileallowedtovisittheirfamilies,didnotactuallywanttogobackforvisits.ThechildrenweresaidtobehappierandfreerintheChildren’sHomesratherthanwiththeirfamilies,particularlyforthosewhoseparentsandrelativeswerestilllivingincamps.Forsomeofthesechildrenthereisnodoubtthatthisisprobablythecase,as theconditions in thecampswheremanyparentsand familiesarelocatedareclearlydifficultnotonlyforthechildrenbutforthecarerstoo.

9. Ontheotherhand,inatleastonecase,aGovernmentrunHome,theManagerhadpersonallyensuredthateachchildinhis institutionknewthewhereaboutsofhisorherfamilyorremainingrelativesandhadgonetosomelength,includingfinancialsupport,toensurecommunicationsweremaintained.Thiswas,however,certainlyoneofthebetterinstitutions.

L. Likelihood of Return to Parent(s)/Family.

While relationshipbetweenchildvictimsof theTsunamiand theirparents andfamiliesseemgenerallytobemaintained,thelikelihoodofthatchildreturninghomewasseentobemuchmoreremote.

�. TheresearchquestionedtheChildren’sHomesmanagersastothelikelihoodoftheboyorgirlreturningtohisorherparentsorfamilyandin79.90% of cases it was stated as not clear (1,240).

2. Only 8 cases were identified as being in process for an eventual return(0.52%).


�. In304 cases itwasclearthatthechild would remain in the Children’s Homesuntiladulthoodorcompletionofeducation(19.59%).

4. It is tobenotedhoweverthat informationwasprovidedonthis issueonly for59.95%ofthechildvictimsoftheTsunamiintheChildren’sHomes.Thismaybeameasureofthefactthatthepossibilityofareturnisnotevenconsideredby themajorityof theChildren’sHomes,makingeven a general answer suchas“notclear”quitechallengingandpotentiallythreateningtothesustainabilityof the Children’s Homes and its funding sources. Children’s Homes may alsonotwishtoidentifychildrengoinghomeasthiswouldentailapotentialendtothe financial support for thatparticularboyorgirl,at leastuntil the institutioncanrecruitareplacement.Generally,theanswer‘notclear’wasunderstoodtoindicate that there were at the time no plan to return the child to the familyand that she or he would remain in the Children’s Home until completion ofeducationatSeniorSecondarySchoollevelasisusuallythecase.Thisisconsistentwithinitialobservationsthathighlightedthefactthatnoplacementreviewsystemorindividualcareplanswereinplaceinanyoftheinstitutions.

5. ItmustalsobenotedthateveninrelationtotheTsunamiaffectedchildren,returnwasonlymentionedbytheChildren’sHomeManagerasapossibilitywherethefamilyactuallyrequesteditratherthantheinstitutionbeingproactiveinsupportingreunificationandreturntoafamilybasedcareenvironment.Insomecases,theManageroftheinstitutionactuallyreferredtodiscouraginganypossiblereturnasthiswouldbedisturbingtothelifeofthechild,particularlytheireducationandtheirintegrationintotheinstitution.

6. Thedataalsoshowsthatin 19.59% of cases, it was thought that children would remain in the institutions permanently.Thisislikelytobereferringto children who are real orphans or who do not have information about thewhereaboutsorstatusoftheirparents.Itmayhoweveralsoincludeotherchildrendeemedparticularlyvulnerablesuchasfatherlesschildren,particularlywheretheplacementwasmadebytheguardianofthechildorthemotherherself.


47SPAN:ThePostTsunamiPopulationCensusinNADandNias,August–September2005.

M. Children having already returned to their parent(s)

ThelikelihoodthatonceachildisintheChildren’sHomeheorsheislikelytoremainthereuntilgraduationfromseniorhighschoolisfurtherconfirmedbytheverysmallnumberofchildvictimsoftheTsunamiwhohaveactuallyreturnedwithinthatoneyearperiodsincetheTsunami.

�. Ofthe2,589childrenaffectedbytheTsunamiwhowereintheChildren’sHomes,only8childrenwereidentifiedashavingreturnedtotheirfamily.

2. Furtherresearch foundanother55childvictimsof theTsunamiwhohadbeenplacedintheChildren’sHomespreviouslybuthadnotbeenincludedinthetotalofTsunamiaffectedchildren.Thiswouldbringthetotal of Tsunami affected children who have returned to their family from the Children’s Homes to 63 or 2.43% of Tsunami affected children (�7boys and 26 girls).Thisdata,however,shouldbeunderstoodasnotcomprehensiveasforthemajorityofManagersofChildren’sHomes,areturntothefamilyisnotseenasasuccessbutratherasafailureonthepartoftheChildren’sHomes.Afailurebothintermsofwhatisconsideredsuccessfulcareofthechild,(thechildleavingtheinstitutionhavingbeencaredforandeducatedtotheendofSeniorHighSchool)butalsoinsomecases,afailureintermsofthepotentiallossoffinancialsupport.Inaddition,mostChildren’sHomesdonothaveaccuratedataaboutchildrenwhowereintheHomeatsomepointbutarenolongerthere.Thenumberscanbeexpectedthereforetobehigher,althoughindicationsarethattheoverallnumberremainsverysmall.

�. Itmustbenotedalso,asexplainedabove,thatthisdataisnotnecessarilyanaccuratepredictionofthetrendsintermsofreturnsasconditionsformanyofthefamilieswhosecarecapacityhavebeenseriouslyaffectedbythedisasterareunlikelytohaveimprovedtremendously inthespanofayearsincetheTsunami.Thefactthatover200,00047peoplewerestilllivingintemporaryaccommodationsalmostayearafterthedisastershouldcautionusastodrawingtoofirmaconclusionat this early stage from the very small number of children who have alreadyreturned.Ofthosereturnedandreunifiedwiththeirfamilies,the majority (45) were reunified through the assistance of the Children’s Home itself or other personswhile�8childrenwerereunifiedthoughthesupportoftheFTRNetwork.

N. Registration of Child Victims of the Tsunami through FTR

TheresearchalsosoughttoidentifyinformationaboutchildrenaffectedbytheTsunamiintheChildren’sHomeswhomaybecategorisedasseparatedandassuchneedtoberegisteredandreceivetracingandreunificationsupportfromtheFTRNetwork.TheFTRregistrationprocesshasbeencarriedoutbyorganisationswhoaremembersoftheFTRNetwork,usingcommonformsandproceduresandacentraldatabasewhich


isnow located inDINSOSNAD.Eachagencyhasprimarilyoperatedwithinacertaindesignatedareawith, forexample,DEPSOS inMeulaboh,MuhammadiyahandKPP inAcehBesarandSavetheChildren inPidie,Bireun,LhokseumaweandAcehUtara. InadditionmostagencieshavebeenactiveinBandaAceh.

TheFTRNetworkhasregistered28��separatedchildren,ofwhom700havebeen identified as having lost both parents and another ��0� who do not know thewhereaboutsofbothparents.Thesechildren are also likely tobeorphansbearing inmindthelackof informationaboutthewhereaboutsoftheirfamiliesayearonwhich,if confirmed, would bring the total of registered children who are orphans to 200�.��8registeredchildrenwerefatherlessand67weremotherless.Theotherregisteredchildren(6�0)werestilllookingforoneparentandareeitherfatherless,motherlessororphans.Inaddition�5separatedchildrenstillhadbothparents48.

�. DatafromtheFTRDatabaseshowsthattheFTRnetworkregistered48separatedchildrenin27Children’sHomes.Thedatahoweverneedstobeadjustedto25as2oftheChildren’sHomeswhichwerevisitedwerelocatedinMedan.InadditiontheFTRNetworkalsoregistered256childreninDayahs,2ofwhichwerealsoChildren’sHomes.Ifwetaketheaboveintoconsideration,thetotalnumberofchildrenintheChildren’sHomesregisteredbytheFTRNetworkinAcehis58.

2. Bearing in mind the total number of Children’s Homes which are caring forTsunamichildren inAceh (��2outof207),the FTR Network has reached 22.32% of the total number of Children’s HomeswhichhavebeenidentifiedbythisresearchascaringforTsunamiaffectedchildren.(or�2.08%ofthetotalnumberofChildren’sHomesinAceh.)ThetotalnumberofChildren’sHomesthatwereactuallycheckedbytheNetworkmemberswiththeaimofeventualregistrationishowevernotknown.

�. Thepresentresearchidentifiedanother543 child victims of the Tsunami in the Children’s Homes who may also have tracing and reunification needs(20.97 %). This data, though, needs more in-depth assessment of the casesidentifiedasitwasclearfromtheresearchthatconsiderableconfusionremainedabouttheconceptsbehindandthedefinitionofseparatedandunaccompaniedchildren.

4. Thereare,nonetheless,clearneedsforfollowupbytheFTRNetworkofthosecasesidentifiedashavingpossibletracingandreunificationneeds.Thisiscertainlythecaseforthe��childrenintheChildren’sHomeswhohavenoknowledgeofthewhereaboutsofbothparents. Inaddition,someoftheTsunamiaffectedchildrenwhoknowthat theyhave lostonecarermayalso still be looking forthe other parent. This would be consistent with the number of children whowereplaced intheChildren’sHomesbyarelative. It is likely though, that thetotalnumberofchildrenintheChildren’sHomeswhoactuallyhavetracingand/orreunificationneedsissmallerthanthat.Yet itwillbeimportantfortheFTRnetworktoensurethatitisreachingallChildren’sHomesandprovidingsupporttothesechildrentoensurethattheirparentalsituationisfullyclarified.

48FTRDatabasefiguresasof�5May2006.(DINSOS-SavetheChildren)


A. The Impact of the Tsunami on the Care Situation of Children

IntheaftermathoftheearthquakesandTsunamiinAceh,itwasfearedthatanexceptionallyhighnumberofchildrenhadbecomeseparatedandthatmosthadbecomeorphansasaresultofthedisaster.Newsmediacarriedstoriesoftensofthousandsandinsomecasesevenhundredsofthousandsof‘Tsunamiorphans’.This,inturn,ledtogreatpublicconcerninsupportofthesechildren.InFebruary2005forexample,VicePresidentKallawasquotedassaying“atleast20,000ofthe[separated]childrenlostnotonlytheirparentsbutalsoallotherfamilymembersandrelatives.”49Whileitbecameincreasingly

Part IVKeyIssuesarisingfrom

theResearch

49�50,000childrenorphanedbytsunami.(2005February5).http://www.laksamana.net/vnews.cfm?ncat=�&news_id=7896Accessed20April2005.


clearthatamuchsmallernumberofchildrenhadactuallybeenorphaned,aDINSOSofficialwasquotedasrecentlyasMay2006assayingthattherewereover40,000orphansasaresultoftheTsunamiandtheconflictinAceh50.Thelackofaccuratedataonthesituationofthesechildrenisunderstandableinthecontextofadisasterofthatscale.Yetwhencombinedwithatendencytosensationalisminordertoraisepublicinterestontheplightof‘orphans’thishasledtomisguidedperceptionsthatAcehwasoverwhelmedbyparentlesschildrenandthatinstitutionsweredesperatelyneededtoaddresstheirneeds.

Thisresearchhasshownthat,infact,thenumberofchildrenwhohaveenteredthe Children’s Homes as a result of losing both parents in the disaster is very small.Only�0%ofthetotalnumberofTsunamiaffectedchildrenintheChildren’sHomesareorphans.Evenifwetakeintoaccountthosechildrenwhostillhavenoinformationaboutthewhereaboutsofbothparentsandassumetheyareorphans,itwouldremainunder�5%5�.Ontheotherhand,significantnumbersofchildrenaffectedbytheTsunamihavebeenplacedintheseinstitutionsasaresultoftheimpactofthatdisasterontheircarers.Thefactthatover98%ofthesechildrenwereplacedbytheirimmediatefamily,inthegreatmajorityofthesecasesbytheirownparent(s),showsthattheprimaryreasonforseparationisnotlossofcarersbutlossofactualorperceivedcapacitytocareonthepartofthesecarers.Secondaryseparationcanthusbeseentobeasignificantfactorinthechangingcaresituationofthesechildrenanditscausesandimpactmustbeunderstoodifwearetopreventthisdisastercausingfurtherunnecessaryseparationfromfamilies.

ThatsomanychildrenwereplacedinaChildren’sHomeasaresultoftheTsunamiis,initself,notsurprising.ThedevastatingimpactoftheTsunamionfamilies’capacitytocope,withhugedestructionofhomes,massivedisplacementandthelossofmostlivelihoodopportunitiesareboundtohavehadahugeimpactoncarers.Thefactthatmorethan�00,000peoplearestilllivingindifficultcircumstancesincampsandbarrackspointtothelastingimpactthisdisasterishavingandthatitwilltaketimeformanyofthesefamiliestobeabletoregaina‘normal’life.Inaddition,relianceonChildren’sHomesisnotnewinAceh,withover�5,000childrenintheseinstitutionsandadrivetobuildevermoreHomes,itwasquitelikelythatfamilieswhowereunabletocopeorprovidewhattheyfeltwasthebestfortheirchildrenwouldlooktotheChildren’sHomestocareforthem.

However there is also no doubt that public misperceptions about number oforphansinAceh,thehugeemphasisoffundingtowardstheinstitutionalcaresolutionsandthelackofdirectandlongertermsupporttofamiliesthathavesufferedparticularlyinthedisasterhavecombinedtoleadtoasituationwherefamiliesareactivelybeingencouragedtoplacetheirchildrenincareandtodosoforthelongerterm.ThisisthecasedespitetheadoptionofaclearGovernment PolicyinFebruary2005whichstatedthatreunificationofseparatedchildrenwiththeirfamiliesshouldbeaprioritytogetherwithfamilysupportwhileinstitutionalisationshouldinsteadonlybeusedasalastresort.52

50ANTARAnewsrelease-4May2006:“Some40,000OrphansinAcehAbandoned”(OrganisationofAsia-PacificNewsAgencies).SeealsoJointMediaStatementbyDEPSOS,SavetheChildrenandUNICEFinresponse.8May2006.5�IfthisdataistakentogetherwiththedatafromtheFTRNetworkonregisteredchildrenwhoareknowntohavelostbothparentsandchildrenwhoarestilllookingforbothparentsandarethereforelikelytobeorphans(about2000children),aroughestimatecanbemadethatthetotalofchildrenwhoarerealorphansasaresultofthetsunamiisunlikelytobemorethan5000.52IndonesianGovernmentPolicyonSeparatedChildren,UnaccompaniedChildrenandSingle-parentChildrenaffectedbyEmergencySituations.DEPSOS(2005)


ThefindingsfromthisresearchhaveclearimplicationsfortheGovernmentandtheagencieswhoareworkingtosupportthecareofchildrenwithinfamiliesastheyshowthataseriouschallengetothesegoalsliesaheadifmoreisnotdonetostrengthenthecapacityoffamilies,includingsingleparentfamilies,tocarefortheirchildreninthesepostTsunamiphase.

WhilethereisnodoubtthatthemajorityofchildrenwhohavelostatleastoneprimarycarerasaresultoftheTsunamiarebeingcaredforbytheirfamilies,asignificantnumberarebeingcaredforininstitutions.Duetothelackofdataonthetotalnumberofchildrenwhohavelostcarers,wecannotatthisstageknowtheexactnumber.Furtherresearchisneededtoidentifychildrenwhohavelostcarerswhowereplacedinthedayahaswellasinthebroadercommunity.

However,ifwetakethenumberofchildrenregisteredbytheFTRNetworkwhohavelostatleastoneparentandwhoarepresentlybeingcaredforbytheirfamily(252�)5�andwecomparethisdatawiththenumberofTsunamiaffectedchildrenwhohavealsolostatleastoneparentwhoarebeingcaredforintheChildren’sHomes(�279),wecanseethatalmostonethirdofthesechildrenarebeingcaredforintheChildren’sHomes(��.65%).ThisdataisonlygivenasanindicationastherearelikelytobemanymorechildrenwhohavelostaprimarycarerasaresultoftheTsunamiwhowereneverregisteredbytheFTRNetwork.YetwealsoknowthatthefigureofchildreninstitutionalisedasaresultoflosingprimarycarersintheTsunamiisalsolikelytobeincreasedgreatlybythefiguresfromtheresearchintheDayahs.Inanycase,thisrepresentsaconsiderablenumberofchildrenwhosecaresituationwasdrasticallyaffectedasaresultoftheimpactoftheTsunami.

ThisresearchhasalsofoundthatthegreatmajorityofTsunamiaffectedchildrenwerenotonlyplacedintheChildren’sHomesbytheirfamiliesbutalsothatmanyremainincontactwiththem.Thiswouldindicatethatthepossibilityofreturntothesefamilieswouldbegreatifthesituationwhichledtotheplacementinthefirstplacewastochange.Yetwehaveseenthatmostoftheseplacementsandtheunderstandingcomingfromtheseinstitutionsarebasedonthechildrenremainingthere,mostlikelyuntiltheycompletetheireducation.TheseareworryingfindingsbecausetheyindicatethattheinstitutionalisationofTsunamiaffectedchildrenisnotlikelytobeshortterm.Inotherwords,theTsunamimayhaveamuchlonger-termimpactonthecaresituationofchildreninAceh.

Inaddition,iftheprimarycauseofseparationistheimpactoftheTsunamiontheability(perceivedorreal)ofafamilytocarefortheirchildren,itisalsolikelythatrelianceoninstitutionalisationwillcontinue,atleastaslongasfamiliesarefacingthosechallenges.WhilethefindingsfromtheresearchpointtothefactthatthemajorityofchildrenwereplacedintheChildren’sHomesnotlongafterthedisaster,italsoshowsthatitdidnotstopentirelyoncetheimmediatechallengesfromseparation,displacementandthestruggletorecovermeansoflivelihoodwereover.FamiliesarecontinuingtoplacechildrenintheChildren’sHomesandthistrendmaywellincreaseiftheirsituationdoesnotsignificantlyimprove.Moreresearchisneededonthisoveralongerperiodoftimebutitseemslikelythatas families findthatquicksolutionsarenotavailabletothem,particularlytotheirhousingandlivelihoodneeds,itislikelythatmanywillseetheinstitutionsasthesafestandmostsustainablemeansofaccessingsupportfortheirchildren,particularlytofinance

5�DatafromFTRDatabase,�2May2006.


thecostoftheirchildren’seducation.Ifthatwasfoundtobethecase,theimplicationscouldbedisastrousnotonlyforchildrenandtheirfamiliesbutforentirecommunitiesasitwoulddisplacesignificantnumberofchildrentogetherwithanyfinancialhelpavailable,awayfromthemandtowardstheChildren’sHomes.WhilethenumberofchildrenwhoareplacedintheHomesasaresultoftheTsunamiissmallcomparedtothetotalnumberofchildreninthoseHomesforotherreasons,theavailabilityoffundingthatislinkedtotheTsunamiismuchbiggeranditsimpactassuchmaybemuchgreaterthanwouldotherwisebethecase.

B. The Increase in Children’s Homes and the Impact of Recruitment Practices

TheresearchhashighlightedthefactthattheincreaseinthenumberofChildren’sHomesinAcehasaresultoftheTsunamiisfarfromover.Atleastonenationalorganisationhasindicatedthatitplanstobuildatotalof20Children’sHomesintheProvinceandanumberof thenew institutionshavereferredtoplans toexpandboth thenumberoftheirfacilitiesandthecapacityoftheirexistingonestoreceivechildren.Whetherthisisrealistic,evenintermsoftheveryhighlyresourcedenvironmentinpostTsunamiAceh,remainstobeseenastherearealreadysomeindicationsofChildren’sHomesstrugglingtorecruitsufficientnumbersof‘neglectedchildren’including‘TsunamiaffectedChildren’fortheirfacilities.Thisisresultinginworryingrecruitmentpractices.

One particular incident illustrates this starkly. The researchers were visitingoneChildren’sHomeinBandaAcehandwereindiscussionswiththeManagerofthatinstitutionwhenhereceivedatelephonecallfromalocalpoliticianwhohadestablishedhisowninstitutionfororphansandneglectedchildreninAceh.ThepoliticianwascallingtoasktheChildren’sHomeManagerwhetherthe lattercould ‘findhim’ fiftychildrenforhisinstitution.Someorganisations,includingthosesupportedbytheGovernmentofMalaysia,areplanningtodeveloplargecapacityinstitutionsforchildren(upto200children)althoughtheypresentlyonlyhaveahandfulofchildrenintheircare.Thereseemstohavebeennoanalysisoftheneedforsuchinstitutions,noindicationofpriorassessmentnordevelopmentofclearcriteriainrelationtowhichchildrentheseinstitutionsshouldcarefor,beyondageneralunderstandingthattheyarefor‘Tsunamichildren’andotherorphans.Thisisclearlyhighlyproblematicinanenvironmentwherefamiliesarefacingseriousandrealchallengesinmeetingthecareandeducationalneedsofthesechildrenasaresultofthelossofcarers,displacementandtheirlossoflivelihood.

Thelackofawarenessonthepartofsomeoftheseorganisationsandinstitutionsofthepossiblelongertermimpactoftheirrecruitmentpracticesisalsodemonstratedbythefactthatanumberofthemhavebeenactivelyrecruitinginthedisplacedpeople’scampsandbarracks.Forexample,oneorganisationhasrecruitedits50childrenfromthecampsandbarracksforitsfacilityinBandaAcehandplanstorecruitanother�00forthesecondChildren’sHomeitisbuildinginthatarea.Ofthe50children,onlytwowere‘realorphans’,20stillhadoneparentandastaggering28hadbothparents.Thisfacility,though,wasnotsetupasatemporarycarefacilitydevelopedwiththeaimofsupportingfamiliesandchildrenwhohaveyettoberelocatedbacktotheircommunitiesorwhosehousing


54ThePostTsunamiPopulationCensusofSeptember2005(SPAN)records209,822peoplewhowerestilldisplacedasaresultoftheTsunami,around��0,000ofwhicharestilllivingintentsorbarracks.55Seeforexample:SavetheChildren(200�)ALastResort:Thegrowingconcernaboutchildreninresidentialcare;Tolfree,D.(2005)FacingtheCrisis:Supportingchildrenthroughpositivecareoptions.SavetheChildrenUK.

needshavenotyetbeenmet.Indiscussionswiththepersonneloftheinstitution,itwasclearthatwhilechildrenwhosefamiliesspecificallywantedthembackwouldbeallowedtoreturn,theoverwhelmingmajoritywereexpectedtobecaredforuntiltheireducationisfinishedandthatfundingwasbeingsoughtandprovidedwiththisinmind.

Inacontextwhereover�00,000peoplearestill,ayearaftertheTsunami,livingincrampedbarracksandcampsortemporarylocations54,itisnotsurprisingthatfamilieshavetomakeverydifficultchoicesaboutwhatisbestfortheirchildren.Formany,thelackofadequatehousingcombinedwiththedistantlocationofschoolsfromthebarracksandcamps,thelackofsecurelivelihoodoptionsandinsomecasesthelossoftheotherprimarycarer,areverylikelytoresultinafamilyfeelingthatthebestoptionforthelongertermwellbeingoftheirchildistoplacethatboyorgirlinaninstitution.ThelongertermimpactoftheserecruitmentpracticesonAcehnesecommunitieslongertermcanonlybeguessedatbutthenegativeimpactofinstitutionalisationonthedevelopmentandwellbeingofchildreniswellunderstoodanddocumentedworldwide55.Iflongerterminstitutionalisationofgreatnumberofchildrenawayfromtheirparents,familiesandcommunitiesisallowedtobecomeoneofthepermanentlegaciesoftheTsunamidisaster,wecanbefearfulforthefutureofAceh.

Itisalsoimportanttorecognisethatthislatestdriveininstitutionalisationisalsotakingplaceinthecontextofa�0yearconflictwhichhasalsoledtotheinstitutionalisationofgreatnumbersofchildrenwhoeitherlostcarersasaresultoftheconflictorwhosecarersfeltunabletocareforandprotectthemasaresultoftheconflict.Whilethisresearchdidnotspecificallyseektogathernumbersofchildrenininstitutionsasaresultoftheconflict,itnonethelessidentifiedwelloverathousandchildrenwhoarerecognisedashavingbeenplacedintoaChildren’sHomedirectlyasaresultoftheconflict.ManymorearelikelytohavebeenplacedintheChildren’sHomesasaresultofthemoreindirectimpactoftheconflictonthelivesoftheirfamiliesandcommunities.FurtherresearchisneededtoassessthefullimpactoftheconflictontheuseofresidentialcareinAceh.

C. A Crossroad for the care of vulnerable children in Aceh

ThisresearchshowsthatAcehisatacrucialcrossroadintermsofhowitdecidestomoveforwardinensuringthecareandprotectionofitsmostvulnerablechildren.ThepresentcontextofgreatnumbersofAcehnesefamiliesbeingseriouslychallengedinthecareoftheirchildren,veryhighlevelsoffundingavailableforinstitutionalresponses,generallackofpublicawarenessoftheimportanceoffamilybasedcareforthewellbeinganddevelopmentofchildrenandwhatamountstoawellestablishedrelianceoninstitutionsfor theprovisionofalternativecarebydonors,organisations, institutionsand insomecasesevengovernmentofficialsdonotbodewell.Thereisnodoubtthatbyandlargethese institutionsandthepeopleandorganisationsrunningthemaredoingso inwhattheyfeelisclearlythebestinterestofthechild.ThebulkoftheseresponsescomefrompeoplewhodeeplycareabouttheplightofchildreninAcehandwanttosupportthem.


TherewererelativelyfewcasesindicatingpersonalmotivationorgainsintherunningoftheChildren’sHomes.FromthatpointofviewAcehpresentsaseeminglycontradictorycontextwherestrongemphasisontheimportanceoffamilyvaluesandfamilytiesgoeshandinhandwithdeeplyrootedrelianceoninstitutionsfortheup-bringingofchildrenforprolongedperiodsoftheirlives,includingthroughtheDayahs.

Children’sHomes,however,whileincreasinglymergingwithDayahs,arearelativelynewphenomenoninAcehandtheyholdquiteadifferentsocialplaceandpurposethanthereligiousboardingschools.ThisdifferencecanbeseennotonlyintermsofthesocialstigmaattachedtohavingbeenraisedinaChildren’sHomeasopposedtothepositivesocialstatusthataccompanieschildrenwhohavebeeneducatedintheDayah,butalsointermsofthebroaderrolethattheDayahsplaywithintheircommunities.ResearchisneededtounderstandbetterthereasonsbehindthesteepincreaseintheuseofChildren’sHomesinAcehoverthelastdecadeandinparticulartheimpactoffundingonthisincrease.

InthatregardthelackofaccurateinformationonthesituationofchildrenintheChildren’sHomesandtheuseofquestionabledatainsomecaseseithertopublicisetheplightof‘orphans’ortoseekfundingrepresentaseriouschallenge.Whileitisimportanttoensurethatthesituationofthesechildrenisbroughttothepublicattention,totallyinaccuratedepictionsofthesituationofthesechildrenareharmfultoensuringeffectiveresponses.Insomecasestheyevencompoundpublicmisconceptionsandreinforcethedrivetobuildmoreinstitutionsinthemisguidedbeliefthattherearetensofthousandofchildrenwhohavebeenorphanedinthedisasterandthereforehavenoparentstotakecareofthem.AscanbeseenfromthedataontheTsunamiaffectedchildrenintheChildren’sHomes,thispictureisfarfromaccurate.TheperceptionofChildren’sHomesbeingplacesspeciallyestablishedtocarefororphansmustbecorrectedtoensurethatappropriateresponsesareprioritisedtorespondtothesituationofthesechildren.

D. The Purpose of the Children’s Homes in the post-Tsunami Context

WhatismoresurprisingisthatinthepostemergencycontextofAcehwherethesituationof familiesandcommunities isconstantlychangingandevolvingas their livesslowlybutsurelyreturntonormal,theplacementofchildrenininstitutionsisnotseenasanemergencysolutionbutasapermanentone.

Indeed,nota singleChildren’sHomewas identifiedashavingamechanismorprocessforthereviewofthechild’splacementasisrequiredbyArticle25oftheUNConventionontheRightsoftheChild.TheChildren’sHomesseemedbyandlargeinagreementthatshouldafamilydirectlyrequestthatachildbereturned,theywoulddoso,andthereisevidencethatthisactuallyhappenedinafewcases.Atthesametime,whenaskedwhethertheneedforachildtoremainintheinstitutionisassessedregularlyorwhethercommunicationwiththechildandthe family takesplacewithaviewtoapotentialreturn,Managersfindthequestionshardtounderstand.

This may well be due to the fact that if, as the research suggests, Children’sHomesareseenasprimarilyameansofensuringaccesstoeducationforfamilieswhocouldotherwisenotaffordit,thentherewouldclearlybenoreasonfortheChildren’sHomestoattempttoreturnthechildtothefamilybeforeeducationiscompleted.This


wouldsimplyleadtothechildbeingdeprivedoffurthereducationasthefinancialsupportprovidedforthechild’seducationthroughtheChildren’sHomesisnotaccessibleoutsideofit.ResearchmustbecarriedoutastowhysomanyfamiliesfeelunabletoaffordbasiceducationfortheirchildreninacontextwheretheGovernmentisimplementinga9yearcompulsoryeducationscheme.

There isnodoubthowever that thepermanencyofplacement isalsoadirectconsequence of funding practices. Children’s Homes were seen to have very stablepopulationswithchildrenleavingaftertheireducationiscompletebeingreplacedbyasteadystreamofnewrecruits.Withouttheassuranceofnumbers,itisvirtuallyimpossibleforaChildren’sHometoattractsufficientsustainablefunding,assupportisusuallyprovidedintermsofthenumberofchildrenatthe institution.Keepingachild inthe institutioniscertainlyafarmoresustainableandsecurestrategyfortheHomeitselfbut it isnotconsistentwithsupportingfamilybasedcareandsupportingchildrenwithintheirfamiliesandcommunities.Theconflictinginterestsherebetweentheinterestsoftheinstitutionsontheonehandandthebestinterestofthechildrenontheothermustberecognisedandaddressed,includingbydonors.

ThepurposeofChildren’sHomes,inAcehaselsewhereinIndonesia,cannotbetoreplaceparentsandfamiliesastheprimarycarersofchildren,particularlywherethelatterarewillingtocareforthem.Thiswouldnotonlydisplacedangerouslythefundamentalroleoffamiliesandcommunitiesasprovidingthebestenvironmentforthefulldevelopmentandwellbeingofchildren,itwouldcompoundthedisplacementofresourcesandservicesawayfromthesefamiliesandcommunitiesandtowardsinstitutions.ThisispreciselywhatcanbeseeninthepostTsunamicontextwherefewlongertermresourcesandfinancialsupportarebeingdirectedtofamiliesandcommunitiestosupporttheminthecareoftheirchildren.Insteadthesearetoooftendirectedtohelpingtheinstitutionstodowhatfamilieswantandcando,tocarefortheirchildren.

The lack of comprehensive family support schemes and the fact that existingassistanceschemessuchasJadup56tendtobetemporaryandlinkedonlytothedisplacedstatushavemeantthatformanyfamilies,placingtheirchildinaninstitutionmaybeseenasthesaferandmoresustainableoptionlongerterm.WithoutdecisiveactiontosupportfamilybasedcareasthebestandonlylongtermsolutionforthecareofchildreninthedifficultpostTsunamienvironment,secondaryseparationcanbeexpectedtobecomeamuchwiderandlastingproblemforAceh.ItisessentialthattheimportantsteptakenbytheIndonesianGovernmentthroughtheadoptionofthePolicy on Separated Children in Emergencies beunderstoodtobenotmerelyapolicystatementbutthebeginningofaseriousandsystematicshift,includingoffinancialsupport,awayfrominstitutionalisationandtowardssupportingfamilybasedcareinthepostTsunamiandpostconflictAcehaswellas inotheremergencyresponses.TherolethatChildren’sHomesare fulfilling inprovidingaccesstoeducationforfamilieswhocouldnototherwiseensuretheeducationoftheirchildrenmustbebetterunderstoodandastrategymustbedevelopedtogetherwiththeMinistryofEducationtoensurethatchildrenwhohavefamilieswhoareableto

56JADUP(Jaminan Hidup)orliterally“lifeguarantee”isaformoffinancialassistanceprovidedbytheCentralGovernmentfordisplacedpopulationsinAcehasaresultoftheEmergency.Themoney(IDR�000orUSD0.�0perdayperperson)isaimedtoensureaccesstobasicfoodneedsandwasdistributedfor6monthsfromApril-May2005untilSeptember-October2005.ReceiptofJadhupwaslinkedtothe“displacedstatus’onlyandextendedfamiliescaringfordisplacedchildrenoutsideofthedesignatedIDPareaswereoftenunabletoaccesstheJadhuponbehalfofthechild.


careforthemdonotendupinaninstitutionmerelytoaccesswhattheyareentitledtoaccessintheircommunities.IfsufficientfundsareavailablethroughtheChildren’sHomestosupportfamilieswhocannototherwiseaffordtosendtheirchildrentoschool,thesefundsshouldberedirectedandmadeavailabletothemoutsideoftheinstitutions.

It isessential in thispostemergencycontext that institutionsandorganisationsrunning these Children’s Homes, as well as families and communities themselves, besupportedtoviewresidentialcareasatemporarysolution,runforthebestinterestofthechild,untilsuchtimeasthechild’sfamilyisableandwillingtoregainitsfullroleastheboyorgirl’sprimarycarer.Thisisparticularlycrucialinrelationtotheinstitutionsactivelyrecruitinginthecampsandbarrackswhereconditionsmaywellinfactnotbeinthebestinterestofthechild,butwherelongertermprospectsforreturntotheircommunitiesisreal.

This, however, would not just require a change in terminology or a change inrecruitmentpractices,itwouldalsorequiretheChildren’sHomestobegintoplayoneoftheessentialrolesofsocialworkasindeedenvisagedbyDEPSOSinitsGuidelines on Child Care institutions,thesupporttochildrenandtheirfamiliestoensurethebestavailableandmostpermanentcareprovisionsforchildren.Inthatregard,everyChildren’sHomeinAcehshouldberequiredandsupportedtoestablishasystemforthereviewofcareplacementswhichwouldentailacareplanforeachindividualchild, includingstepsfortheeventualreturnofthechildtohisorherfamilyor, ifthat isnot inthechild’sbestinterest,anotherfamilybasedenvironment.IntheimmediateandinrelationinparticulartochildrenaffectedbytheTsunami,areviewofallcasesshouldbegin.Itshouldincludeasituationassessmentofthefamily,discussionswiththosefamiliesonbestcareoptionsinthelongertermandaplanforsupportingthefamilylongertermtocarefortheirchild,aswellasdiscussionswiththeindividualchildtoidentifypreferredcareoptionsandthedevelopmentoftransitionalprogrammesuntilthechildisabletoreturntohisorherfamilyandcommunity.57

ThiswouldbeinlinewithDEPSOSpoliciesonthecareofchildreninandoutsideChildren’sHomesandwouldrepresentafirstpositivesteptowardsChildren’sHomesbecomingmore centresof support andoutreach to children and their families in thecommunityratherthanpermanentresidentialfacilities.Inthatregard,thefactthatthemajorityofchildrenintheChildren’sHomeswereseentoretainrelationshipswiththeirfamiliesprovidesaverypositivefirstbasisfordiscussinglongertermcareoptions.Atthesametime,theclearissuesrelatingtoaccesstoeducationwouldneedtobeaddressedaspartofthesupportplantofamilies,ifreturnisgoingtobeinthebestinterestofthechild.

In addition a review of plans for the development of new institutions or theexpansionofexistinginstitutionsinAcehshouldbeundertakenunderDINSOSwiththesupportofDEPSOS.OrganisationsandinstitutionsplanningtobuildnewChildren’sHomesortoexpandexistingonesshouldberequiredtofirstdemonstratetheclearneedforsuchaninstitutionandjointassessmentsoftheseneedsshouldbeundertakentogether

57ItisworthnotinginthatrespectthattheGovernmentPolicyonSeparatedChildreninEmergencyalreadystatesthat“Every child placed in an institution must be immediately registered and recorded by the MOSA (DEPSOS) so as to facilitate subsequent tracing and eventual reunification with his/her family, or to determine whether the child’s status in the institution should be put on a permanent footing.”Part D.8. (DEPSOS- February 2005)


withtheGovernmenttoensuretheimplementationoftheGovernment’sstatedpolicytosupportfamiliesasthefirstcareoptionsforchildrenaffectedbytheEmergency.TheBRRanddonorsinIndonesiaandabroadshouldbemadefullyawareofthisGovernmentPolicyanditsimplicationsfortheirinterventionsinthecontextofAceh.Theyshouldbeencouragedinsteadtoredirecttheirimportantsupporttowardsfamilybasedinterventionsthattargetfamiliesfacingclearchallengesincaringfortheirchildren.

Finally,aneffectiveandcentralisedregistrationandaccreditationsystemforeachChildren’sHomeinsteadofitsparentorganisationshouldbeputinplaceattheProvinciallevelanddata fromeachoftheDistrictsshouldbereceivedbyDINSOSNADona4monthsbasistoupdatethecentralisedrecords.TheserecordsshouldregularlybesharedwithDEPSOSatthecentralgovernmentlevelwhichhastheresponsibilitytocollate,checkandmaintainadatabaseofallChildren’sHomesacrossIndonesia.

TheearthquakesandTsunamithatstruckthecoastofAcehinDecember2004havecausedenormoussuffering,lossanddisplacement.Theyhaveresultedinthedeathsofmorethan��0,000peopleandhaverippedapartthelivesofmanymorethousandsoffamilies.ThelongertermimpactonagenerationofchildreninAcehcanonlybeguessedatbutthereisnodoubtthathadthisdisasterhappenedinanareawherefamiliesandcommunitiestieswerenotasstrong,thedeathtollandsufferingincurredwouldhavebeenevengreater.ItisatestimonytotheresilienceofAcehnesefamiliesthatsomanyseparatedchildrenwereimmediatelysupportedandtakencareofbytheirrelatives,bytheirextendedfamiliesandeveninmanycasesbytheirneighboursandothermembersoftheircommunities.AndyetthatveryresilienceandimportanceoftheextendedfamilyinAcehisbeingchallenged,notonlybytheTsunamibutby�0yearsofconflictandbyfundingpracticeswhichprioritiseresidentialcareratherthanstrengthenthecapacityoffamiliestocareforthesechildren.Acehisindeedatacrossroadintermsofhowitrespondstothechallengeofcaringforitsmostvulnerablechildren.Thesechildrenhavelostmuchinthosedisastersbutstillhavefamilies,relativesandcommunitieswhoinmanycasesarewillingtotakeresponsibilityandcareforthemifsufficientsupportandappropriaterecognitionoftheirimportantroleisavailable.

Thequestionnowiswhetherthissupportisgoingtobemadeavailableorwhetheritwillcontinuetobenefitinstitutionsratherthanchildren.



�. ThisresearchhasshownthattheoverwhelmingmajorityofchildrenwhohavebeenplacedintheChildren’sHomesintheaftermathoftheTsunamiarethereasaresultofsecondary separation,inotherwordstheimpactofthedisasteronfamilies’abilitytocareandprovidefortheirchildrenratherthanduetothelossofactualprimarycarers.Interventionsdirectlytargetingfamilieswhoarefacingchallengesinthecareoftheirchildrenshouldbeprioritised,inlinewiththeGovernment’sstatedpolicyonchildrenaffectedbyemergencysituations,withparticularfocusonsupportingsingleparentfamiliesandextendedfamiliesthatarecaringforTsunamiaffectedchildren.

2. FundingbytheGovernmentandprivatedonorsshouldbeshiftedawayfromsupportinginstitutionalsolutionsandinsteadsupportfamilyandcommunitybasedinterventionsthataresustainableincludingthroughensuringfamiliescanaffordtheeducationoftheirchildrenuntilcompletionofstudies.

Part VRecommendations


�. TheBRRshouldconsiderreviewingitsfundingofChildren’sHomesandshouldinsteadprioritisedirectfamilysupportinterventions.ItshouldalsoensurethatitsexistingfundingtotheChildren’sHomesisbeingmonitoredcloselyandindependentlytoensurethatitbenefitsthechildreninthoseinstitutions.

4. NonewChildren’sHomeshouldbebuiltinAcehwithoutpriorassessmentofclearneedsforsuchaninstitutionthatcannotbemetotherwise.TheassessmentshouldbecarriedoutjointlybyDINSOSandDEPSOSandshouldbeinlinewiththestatedgovernmentpolicyofencouragingfamily-basedcarewheneverpossible.

5. ExistingplansforthedevelopmentofnewChildren’sHomesortheexpansionofexistingonesshouldbereviewedsimilarlybyajointDINSOS/DEPSOSassessmentteam.

6. Thesituationof theyoungestTsunamiaffectedchildren intheChildren’sHomes,particularlytheunder5,shouldbereviewedurgentlybyDINSOSandalternativefamilybasedcareoutsideoftheHomesshouldbesoughtforthesechildren.

7. Discussions should take place immediately between DEPSOS, DINSOS and theManagers of Children’s Homes to discuss recruitment practices and put in placeacasereviewsystemwiththeaimofsupportingeventualreturntofamilycareorwhenthatisnotinthebestinterestofthechild,toconsideralternativefamilycaresolutions.Thechild’sownwishesinrelationtocarearrangementsshouldbesoughtandgivenseriousconsideration.

8. RegularcontactsbetweenchildrenintheChildren’sHomesandtheirparents,familiesandotherrelativesshouldbeencouragedandfacilitatedincludingthroughschemeswhichsupportfrequenthomevisitsandfacilitatecommunicationandtransport.

9. TheFTRNetworkshouldfollowuponthepossibletracingneedsofchildrenidentifiedinthisresearchandsupportwheneverpossiblefamilyreunification.

�0. DINSOSshoulddevelopaneffectiveandcentralisedregistrationandaccreditationsystemforeachChildren’sHomeinadditiontotheORSOSregistrationprocess.

��. DEPSOSandDINSOSshouldputinplaceadatacollectionsystemtoensurethatdatafromtheDistrictsonallChildren’sHomesisavailableandupdatedbyDINSOSNADona6monthsbasis.TheserecordsshouldregularlybesharedwithDEPSOSatthecentralgovernmentlevel.Thedatafromthisresearchshouldbeincludedinthisdatabaseandupdatedinsixmonthstimetoensuretrends inrelationtocareplacementsaremonitoredeffectively.

�2. Updated and accurate data on the situation of children affected by the Tsunamiincludingnumberkilled,numberdisplaced,numberwhohavelostcarers,numberlivingwithextendedfamilies,numberinschool,numberwhowork,numberinresidentialcare disaggregated by gender and age should be gathered and compiled by therelevantGovernmentAgenciesincludingDEPSOS,KPP,DEPDIKNAS,DEPAG,BPS.Suchdatashouldbemadepublicinordertoensurethatinterventionsaretargetedeffectively.


��. TheGovernment’sPolicyonSeparatedChildrenshouldbedisseminatedmorewidelyanddiscussionsatprovincialanddistrictlevelsshouldtakeplacewithinDEPSOS,DINSOSandotherrelevantgovernmentalagenciesincludingtheMinistryofEducationofpracticalstepstobetakentowardsitsimplementation.

�4. AmajorcampaignofpublicawarenessontheimportanceofafamilyenvironmenttothewellbeingandrightsofchildrenshouldbedevelopedbytheGovernmenttogetherwiththeagenciesworkingwithintheFTRNetwork.Thiscampaignshouldaimtoreachthecampsandbarracksbutalsohostcommunitieswherefamiliesarereturningtolive.

�5. Morecomprehensiveresearchshouldbeundertakentoassessthequalityofcareprovidedforchildrenintheinstitutions inAcehincludingensuringthatminimumstandardsareabidedwithandsufficient.Amonitoringsystemshouldbedevelopedto ensure regular assessmentof these institutions and funding and accreditationshouldbelinkedtotheinstitutionsprovidingqualitycareforchildren.

�6. DEPSOSshouldensurethatitsstandardsfortheoperationofchildcareinstitutionsareunderstoodandimplementedinAceh,inparticulartoensurethattheChildren’shomesbegintoplaytheirroleasoutreachinstitutionstosupportchildrenandtheirfamiliesratherthanoperatingpurelyasresidentialcareinstitutions.

�7. TheimportantlinksbetweentheplacementofchildrenintheChildren’sHomesandeducationshouldbeanalyzedfurther.ResearchshouldbeundertakentounderstandhowthevariousfinancialsupportschemesdevelopedbytheGovernmentfortheeducationofchildrensuchasOperationalAidtoSchools(Bantuan Operasional Sekolah BOS),andthe9yearscompulsoryeducationschemeactuallyimpactonthecapacityofthemostvulnerablefamiliestoensureaccesstoeducationfortheirchildren.


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at Regional (Aceh) and National Levels in Indonesia(inconjunctionwithUNICEF).RepublicofIndonesia�945Constitution

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A Rapid Assessment of Children’s Homes in post … ensure that a generation hit by such an unprecedented tragedy is able to move forward ... A Rapid Assessment of Children’s Homes

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