Edukans and Education in Emergencies
Vision, strategy and approach
Dik Verboom, 13 Feb. 2012
Background
Edukans has a unique position as a development organisation focussed on accessibility, quality and
relevance of basic education for underprivileged children and adolescents. With other Dutch
development organisations Edukans currently cooperates in two alliances: ICCO and Connect for
Change (C4C). We involve the Dutch public, schools, churches, foundations and private enterprise in
support for basic education in 11 focus countries.1 This support is by funding of programmes of
partners and by organising linking & learning and capacity building for teachers and other
stakeholders in our focus countries in cooperation with schools and educational institutions in the
Netherlands. More and more, Edukans operates as a broker between different stakeholders, both in
the Netherlands as abroad.
Edukans is working on the following ambitions:
1. to make a demonstrable contribution to good-quality, accessible and relevant education for
underprivileged children and adolescents in the developing countries where we work.
2. recognition by the Dutch education sector as the organisation for attractive fundraising and
formative activities with regard to education in developing countries and for the exchange of
ideas and expertise in this field.
3. to have a differentiated (financial) support base in society to achieve its targets and mobilisation
of its supporters in lobby for education in developing countries (lead partner GCE).
By supporting civil society organisations, Edukans enables underprivileged children and adolescents
in developing countries to go to school, irrespective of race, religion or political conviction.
‘Underprivileged’ particularly refers to the marginalised, the handicapped, refugees, orphans,
working children, street children, girls, aids victims.
Edukans support concerns all forms of general education up to the age of 15 and vocational training
up to the age of 25. Edukans focuses on projects that improve the accessibility, quality and relevance
of basic education for underprivileged children. Edukans has a wider definition of ‘basic education’,
reflecting an emphasis on learning rather than education : meeting basic learning needs (Jomtien
1990), as basis for lifelong learning. The definition includes primary and lower secondary education,
including formal and non-formal skills training and technical and vocational education (TVET).
Though the main delivery system may be formal primary schooling, there are many other pathways
and instruments to provide for basic education. Especially ICT offers many new and unconventional
opportunities (e.g. distance learning, e-books).
The Edukans approach is founded on our vision on teaching and learning2. Edukans developed the
’STAR-school model’ as an approach to deliver and sustain good quality education. <link website
Edukans> An adapted version of this model, launched in 2011-2012, is also applicable for education
in situations of emergency and reconstruction, a new focus area of Edukans.
Education in emergencies and reconstruction
“Education is considered as a ‘sacred duty’ for countries to fulfil, supporting educational opportunities
for all and educational methods ‘best suited to prepare children of the world for the responsibilities of
freedom” (UNESCO’s Constitution, 16 Nov. 1945).
1
Those countries are: India, Ethiopia, Ghana, Kenya, Malawi, Uganda, Zambia, Peru and Bolivia. In Sudan and
DR Congo, Edukans supports other alliance members with advice and expertise.
2
Edukans (October 2012). Quality Education. A vision on teaching and learning.
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Realising that today around 28 million (47%) of 61 million non-school going children worldwide live in
(post-) conflict areas or (post-) disaster situations, Edukans decided to put more emphasis on
‘education in emergencies and reconstruction’.
Armed conflict is robbing this huge number of children of and education by exposing them to
widespread sexual violence, targeted attacks on schools and other abuses (UNESCO, 2011, p. 132) 3.
Emergencies comprise both man-made (armed conflict) as natural disasters disrupting the lives of
people. Especially children and youth are vulnerable as they find themselves in a very unpredictable
and unsafe environment during and after conflict or natural disaster.
A key characteristic of emergency situations is that governments are unable or unwilling to provide
Education for All. As a rule, the international community and other actors come in to bridge this gap.
Hendrien Maat (2004, p. 5) defines ‘emergency education’ as follows4:
“The term ‘emergency education’ is used to refer to education in situations where children lack access
to their national education systems, due to man-made crisis or natural disaster. Because modern
conflicts are chronic and recurring, the sector tends to use the word ‘emergency’ in its broader sense,
including not only the first days or months after an event, but also the effort to deal with the on-going
effects of the crisis, and reconstruction”.
Education is an essential intervention for empowerment of people by imparting knowledge, skills
and attitudes to build up a decent, fulfilling life. In combination with other humanitarian
interventions, it has a pivotal role in bringing back ‘normalcy’ to the lives of children directly
following an emergency. Education has high potential as a preventive intervention in disaster
preparedness, for example in offering life skills and peace education. In the last decade, great
progress has been made in thinking and approaches on the role of education in rehabilitation and
safeguarding the livelihoods of children (and their communities). The development of INEE (InterAgency Network on Education in Emergencies is a clear witness of this development5.
Maat (2004, p. 10) distinguishes 10 key building blocks for successful education programs in
emergency and reconstruction situations (post-conflict or post-disaster): access, inclusion,
protection, community participation, teacher training, resources, healing, curriculum, life skills and
capacity building. As compared to ‘normal’ situations of education quality improvement, the aspects
of ‘healing’ and ‘life skills’ deserve special attention in Edukans’ approach. Essentially, it concerns
empowerment and coping capacity of children to build up a harmonious and decent life.
Today, these building blocks are part and parcel of well-defined approaches. Good minimum quality
standards have been developed (e.g. the Sphere Handbook (updated in 2011): Humanitarian Charter
and Minimum Standards in Humanitarian Response and the INEE Minimum Standards Handbook).6
Within her span of control and strategy, Edukans will abide to these quality standards.
Drawing on experience from a range of countries, the UNESCO Global Monitoring Report 2011
identifies major problems and sets out solutions that can help make education a force for peace,
social cohesion and human dignity. The report (p. 126-128) mentions four major failures of
international cooperation and actions to be taken in the provision of education in conflict-affected
states:
1. Failures of protection. The violations of human rights at the heart of the education crisis in
conflict-affected countries (especially sexual terror as a weapon of war) have to be stopped by
3
UNESCO (2011). EFA Global Monitoring Report 2011. The hidden crisis: Armed conflict and education.
http://www.unesco.org/new/en/education/themes/leading-the-international-agenda/efareport/reports/2011conflict/
4 Maat, H.M. (2004). Education in Emergencies and Reconstruction. Policy paper for ZOA Refugee Care.
5
Strategic Plan 2011-2013 of INEE can be found here: http://www.ineesite.org/en/strategic-plan
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http://www.ineesite.org/en/minimum-standards/handbook
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rigorous investigations of human rights violations and applying sanctions according to
international conventions. Schools should be respected and protected as sanctuaries of peace.;
2. Failures of provision. Possibilities have to be sought to fix the underfinancing of the education
sector in emergencies (up till now only 2% of humanitarian aid). Education in emergencies should
fit the needs and demands of parents and children;
3. Failures of early recovery and reconstruction. Increase cooperation and more efficiency to be
more effective in providing early windows of opportunity and mechanisms for peace building
and reconstruction;
4. Failures in peace building. Unlock the potential of education as a force for peace (intercultural
dialogue, religious education, curriculum development, teacher training, textbook reform).
(I)NGOs are dependent on the international community (United Nations) to address and mitigate
overriding protection issues and human rights violations. However they are important in
documenting and reporting violations. Strategically, Edukans will put its efforts on provision,
recovery/ reconstruction and peace building, as an add-on component in cooperation with likeminded implementing organisations.
Paul Collier (2006, p. 6), in his analysis of civil wars since 1960 states that: “Conflict is concentrated in
countries with little education. The average country in our sample had only 45% of its young males in
secondary education. A country which has ten percentage points more of its youths in schools- say
55% instead of 45% - cuts its risk of conflict from 14% to around 10%”.7
Immediately following an emergency educational facilities have to be build up to rehabilitate
children, youth and their communities. Rehabilitation and reconstruction activities focus on
improving living conditions by providing or restoring basic facilities, infrastructure and services. This
includes water & sanitation, health, production and psycho-social care. However, education has to be
part of this response. Education in emergencies is an imprescriptible part of the Rights of the Child
(article 28) and an element of Education for All (Dakar Framework of Action, 2010; MDG’s, 2001).
The UNHCR Education Strategy 2012-2016 is built on six major actions:8
1. More children will learn better in primary school
2. Schools will protect children and young people
3. More young people will go to secondary school
4. More young people will follow higher education courses
5. Education will be available at every age
6. Education will be part of all emergency responses.
Edukans sees the actions 1,2, 5 and 6 as prerequisites for further life-long learning. These include the
main quality and relevance issues as stipulated in the major failures of education provision in
emergency situations. In Edukans’ policy, secondary and higher education are valued very relevant,
but it needs a good foundation base in order to be successful. Spin-offs of secondary and tertiary
education are more indirect. Literacy for adults or TVET (formal and non-formal) for out-of-school
youth can offer more direct benefits (community involvement, income generation opportunities).
Before planning any intervention in education in emergencies (esp. conflict and post-conflict), a
comprehensive understanding of the political, economic and social dimensions of conflict is a
precondition. Otherwise, the role of education cannot be rightly understood in the specific context
and even there is a risk of negative outcomes such as: the use of education to suppress minorities,
manipulation of history and textbooks for political purposes or inculcation of attitudes of superiority.
7
Collier, P. (2006) Economic Causes of Civil Conflict and their Implications for Policy. Washington DC: World
Bank. Also quoted in: Save the Children Alliance (2008). Delivering Education for Children in Emergencies: A Key
Building Block for the Future. http://www.ecdgroup.com/docs/lib_005985256.pdf
8
UNHCR (2012). Education Strategy 2012-2016. Geneva. http://www.unhcr.org/4af7e71d9.html
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Contexts and types of interventions
Armed conflict
Since the end of the cold war, the number of internal armed conflicts with national spill over has
risen sharply. Though many conflicts start nationally, often neighbouring states become involved via
refugee flows and military or financial involvement. Violence against civilians is the rule rather than
the exception. Huge numbers of people get displaced, both refugees as internally displaced people
(the so-called IDPs).
The impact of conflict on children’s lives is manifold:
 direct physical suffering (injured, orphans, deaths, homelessness)
 psychological damage and serious effects on social and emotional development
 harmful cognitive development (literacy, numeracy, critical thinking, problem solving capacities)
 deprivation of material needs and structures that give meaning to their lives (their homes, health
systems, schools, religious institutions).
Refugees
UNESCO (2011, p. 142) estimates that in the decade up to 2008, over 2 million children were killed in
conflicts and 6 million disabled. In armed conflict, civilians are targeted. Especially marginalised and
vulnerable households are the victims (homes destroyed, crops and livestock stolen). Even more
alarming are attacks on children, school infrastructure, rape and sexual violence, recruitment of
children into armed forces and abduction. Important to note is that the loss of life is usually bigger
after, than during a conflict, due to widespread hunger and disease. Increasingly, armed conflict is
one element of complex emergencies linked to drought, floods and food crises. 9
Refugees end up in a neighbouring host country where they face many challenges and adaptation
problems:
 bad health status, loss of community structures and deprivation caused by displacement and the
long , risky and exhaustive journey to the host country;
 a negative attitude or non-acceptance of the host population. The influx of refugees puts stress
on scarce natural resources (land, firewood), facilities and infrastructure. The life of the host
population may be further disrupted by an invasion of humanitarian organisations (including
distortion in power balance and major shifts in the local economy).
 tensions and conflict related to culture, language, ethnicity, religion, politics or even presence or
infiltration of violent groups among the refugees themselves ( e.g. Hutu militia in DR Congo);
The first emergency response is generally to put up refugee camps and provide shelter, food and
health services to the displaced. This is the phase of emergency aid, when usually many NGO’s flock
in to provide assistance. Specialised relief and emergency organisations organise huge campaigns to
raise funds with the general public for the needy. In this phase, education is typically not viewed as a
first priority.
However, there is a great need to be prepared in time for the rehabilitation of children, youth ánd
their communities. It is adamant to put up education facilities as a basic intervention to cater for the
development, resilience and the quality of life of children in the first line of response already (a fact
acknowledged by many international organisations cooperating in INEE).
In practice this means that funds should be raised in time and reserved for investment in educational
facilities or at least in child-friendly spaces as a first catchment. Those funds should be directly
spendable soon after the first incidence of an emergency. How and with whom to do this is an
important element in Edukans’ approach.
Next, education must have quality, relevance and a lasting effect. The Save the Children report (2008,
p. 13) stresses that “in refugee situations, education interventions might include working with host
governments to secure entry into local schools, developing a certification of studies process for when
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UNESCO (2011, p. 141) mentions the examples of DR Congo and Darfur (Sudan).
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the children return home and finding home-country curriculum materials and teachers with home
country language skills.” It will very much depend on the local situation and the scale of the refugee
problem whether the ambition to work with host governments is attainable. Other solutions – for
instance providing education in camps with home country curriculum - may be more appropriate or
effective. This is another element Edukans has to count with in her approach.
Internally displaced people (IDPs)
Contrary to refugees, there are no legally binding international laws or instruments describing the
rights of IDPs (UNESCO; 2011, p. 154). This aggravates the ‘failure of protection’.
Internal displacement exposes children to forced military recruitment (as happened in DR Congo,
Sudan, Uganda, Liberia, Sierra Leone and Angola). Neither the international donor community nor
governments facing civil conflict view education as a priority for IDPs. As the Save the Children report
puts it: “Governments engaged in conflict tend to be less interested in IDPs than they are in winning
the conflict, and the international donor community tends to prioritize food, water and shelter for the
IDPs over education”. Providing education for displaced and mostly dispersed populations involves
high costs. Security issues emerge because people may become direct targets in the conflict. As a
result, the educational service provision is inadequate and at best biased.
For IDPs, most of the arguments of cross-border refugees apply, but when putting up interventions,
in most cases, the education system and curriculum of the home country can be used with minor
adaptations. Better than in cross-border refugee settings, the government can be addressed to
provide quality basic education.
Post-conflict
Typical for post-conflict situations is the return, reintegration and rehabilitation of a substantial
number of refugees or IDP’s in their region of origin. This is a complicated process. Impoverished
returnees often find their houses and land occupied by others. Ex-refugees may be viewed as
opportunistic runaways. They face great problems to reclaim their rights and access to schooling and
other basic social services. Especially when it concerns specific ethnic or religious groups, the
tensions can be very high.
Reconstruction of education after violent conflict is one of the daunting challenges faced by postconflict governments operating in an environment of political instability and uncertainty. “Having
inherited a severely degraded school infrastructure, post-conflict authorities have to embark on a
rebuilding process with limited financial resources ( UNESCO; 2011, p. 221). At the same time,
‘delivering the education peace premium’ is one of the most visible things to demonstrate that the
country is on a new path. Education is a very visual and vital element of the wider rehabilitation and
reconstruction effort. And is it a precondition for finding economic opportunities, civil society
strengthening, political stability and institution building. The role of education is still highly underestimated (only 2% of humanitarian aid spent on education).
Responses to education in post-conflict include the following - most parallel - actions (UNESCO;
2011, p. 224-226):
 withdrawal of user fees, to remove entry barriers and have an early ‘peace dividend’ in
education;
 building on community initiatives, by recognition of and financial support to existing education
efforts by communities. When balanced with other measures, this can offer a quick gain. Later on
these can be integrated into the government structure;
 rehabilitation of schools and class rooms as a precondition to boost primary school enrolment
(when combined with withdrawal of user fees and ‘back-to-school’ campaign);
 recognize returnees’ educational attainment (certification of education obtained in other
countries or cross-border examinations to prevent frustration and wastage);
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support to accelerated learning programmes, for children who missed out on schooling for some
years (e.g. full primary cycle in 3 instead of 6 years, certification and entering grade 7 of regular
school);
prioritization of education and skills training in disarmament, demobilization and reintegration
programmes (DDR). Ex-combatants are a risky group lacking basic literacy and other skills. They
run a high risk of re-recruitment and have great difficulties in reintegration. Skills training linked
with income earning opportunities has proven to be a good alternative;
provision of psychosocial support, to cope with trauma and build self-esteem and selfconfidence;
recruitment of teachers. This needs to be done as soon as possible to realise early gains in
primary education. One measure may be to provide crash trainings to returnees who taught in
camps, another one the recognition of teacher qualifications gained outside the country.
Edukans’ approach includes the above priorities, by combining accessibility with quality development
as a parallel track while fostering ownership (sustainability). This entails renovation and extension of
existing schools or construction of new ones in underserviced areas as a first quick response. The
challenge is to provide education for both the existing population as the returnees and foster
peaceful co-existence of both groups.
Apart from the regular requirements in terms of infrastructure, school materials, teaching and
learning process, school management and involvement of communities (governance), peace
education needs special attention. Benefits must accrue equally to all. Another priority is technical
and vocational skills training. Earning a decent income by putting up small businesses is a major
enabler of reconstruction and stability.
Natural disasters/ calamities
Natural disasters — floods, earthquakes, landslides, storms or droughts — have an indisputable
negative long term impact. Infrastructure – including schools - is destroyed. A large number of
people - especially children - are killed, injured or infected by diseases. Households are in a state of
despair, displacement and impoverishment. Because schools have vanished or due to other survival
priorities or sheer poverty, families do not send their children to school (Save the Children; 2008,
p.13).
In such situations, education is part of a bigger rehabilitation effort in getting the system back to
normal. The challenge of emergency education responses is to enable education activities in short
term, so that children – even when it is temporary or non-formal schooling – at least can get the
essential psychosocial support and experience safety and structure in their lives. The next phase is to
resume reconstruction of schools and build up formal education as soon as possible. Rebuilding
society starts with education.
Types of intervention:
 putting up temporary, but child-friendly educational structures and provision of educational
materials directly after a disaster.
 teacher recruitment and training (identify teachers from the communities).
 community mobilisation, formation and training of PTAs and SMCs.
 technical and vocational skills training (non-formal, related to safeguarding subsistence).
Long-running, ‘silent’ emergencies
Unfortunately there are many ‘silent’ emergencies, emergencies no longer on the international
agenda, out of media attention though huge numbers of people still find themselves in a deprived
and vulnerable situation (e.g. DR Congo, Darfur, eastern Chad). Especially the children in such
‘forgotten emergencies’ lack a proper future perspective.
Rehabilitation is badly needed and education plays a major role in restoring normalcy and future
perspectives. In practice, education suffers from a ‘double disadvantage’: education was left out as a
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priority area in the initial emergency response and this is reinforced by shortfalls in structural aid for
education due to competing high profile, ‘mediagenic’ emergencies (UNESCO; 2011, p.201).
Typically, people live in refugee camps for many years, resulting in a (semi-) permanent situation.
Integration with the host population is minimal and they are neglected in government policies.
Silent emergencies include people displaced by armed conflict, by natural disasters, by on-going or
recurrent drought (e.g. pastoralist communities) or oppressed ethnic minorities in peripheral areas.
Types of intervention, special emphasis:
 peace education by involving wider environment;
 offering educational opportunities (basic education+, including TVET) both for refugees and
original population (to build up capacity for survival and income earning opportunities).
As explained, support is lacking and for different reasons it is difficult to raise funds for this type of
emergencies. However, given the great need we see opportunities to involve our supporters and to
fund these kind of emergencies via an emergency fund.
Edukans strategy in education in emergencies
Edukans’ roles can be summarised as: fundraiser, financier, advocate, broker and education expert.
The strengths of Edukans are: linking education in the Netherlands with education South
(campaigns, linking & learning programmes, knowledge institutions), policy influencing (lead partner
of GCE Netherlands chapter), thematic specialisation and programmatic approach (alliances, STARschool approach). Core message: Empowerment by Education.
General strategy
1. Fundraising. During (inter)national relief and emergency aid campaigns Edukans wants to put the
urgency of education on the agenda in the Netherlands and raise funds for an education
emergency fund. This fund enables Edukans to deliver direct support when need arises. Edukans
will act on a MoU signed with preferred (implementing) partners. Priority: ACT Alliance members
(as member of ICCO-cooperative).
-> Marketing and communication strategy to be worked out.
2. Financing. This emergency fund enables:
a. a direct response when need arises (a head start with rehabilitation by providing a full
education package, a kind of STAR-school Plus, which may include a school-in-a-box
approach including teacher training and community sensitisation package).
b. contribution to ‘silent’ disasters in failing states or in situations where governments fail
or are unwilling to support.
c. contribution to disaster preparedness (e.g. peace education, life skills) both for potential
victims as potential aggressors.
3. Broker. Cooperation with organisations experienced in emergency aid by providing financial
support to education in emergencies for implementation of programmes mutually agreed upon,
but compliant with Edukans’ minimal requirements. After (quick) approval of the proposal and
adequate communication and fundraising briefing, Edukans:
a. provides add-on support for educational interventions as part of the programmes funded
and implemented by cooperating partner(s);
b. starts communication, advocacy and fundraising, preferably in a country-wide campaign,
but with a focus on Edukans’ constituency and supporters. Part of the MoU.
4. Expertise/ advice. Within the budgets convened, Edukans offers advisory services on areas such
as education programming (STAR-school), effectiveness of teaching and learning, community
involvement, life skills, SRHR and training on TVET.
5. Advocate. Experiences will be validated and shared in the education community and with the
wider public. Input for advocacy and lobby as well.
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Educational responses to emergencies: Edukans minimum requirements
In conflict and post-conflict situations the first concern is to provide basic facilities to offer vulnerable
children safety and more steadiness in their daily life. But this point of departure is not enough.
Edukans assesses education emergency proposals on inclusion of the following elements:
1.
Putting up child-friendly spaces.
2.
Putting up temporary school facilities or upgrading and extension of existing infrastructure
(in the case of post-conflict).
3.
Teacher recruitment and training.
4.
Teaching materials
5.
Establishment and reinforcement of school committees, to guarantee parent and community
support (SMCs and PTAs).
6.
Provision of curriculum of country of origin and development of adaptations suiting
children’s needs (esp. psycho-social recovery, peace education).
7.
Involvement of government.
8.
Alternative education (for older children, out-of-school children, outreaching to remote
areas, flexible school hours for working children).
9.
Post-primary education for adolescents, to prevent them from being recruited in military
service or sex trade, to teach citizenship, life skills, SRHR, peace education. Non-formal skills
training or TVET is also an important intervention.
10.
Early childhood development centres. age-appropriate activities that support their physical,
emotional and intellectual development and allow them to make a successful transition to
primary school.
Clarification:
 The first five elements are in line with Edukans’ STAR-school approach. Element nr. 6 is
closely connected with (3) and (4), teacher training and teaching materials. Therefore we see
1 – 6 as ‘hard’ minimal requirements. For proper monitoring, Edukans will adapt the STARschool model to fit emergency responses. To be explored: linkage with other existing
approaches (e.g. UNICEF ‘School-in-a-box’)
 Involvement of government (7) is a prerequisite and should be realised whenever possible, in
a clear agreement. For non-involvement, clear arguments are needed.
 Elements (8) and (9) go beyond the school as locus of intervention, but these have to be
included, if possible in the first stage of support, but certainly soon afterwards. This concerns
the preconditions for empowering people and communities to shape their identity, resilience
and build up sustainable livelihoods.
 In its policy, so far Edukans has no explicit focus on early childhood development (10), but in
emergency situations this is unmistakeably a necessary preventive intervention. Preferaby,
ECD is included in element (1), the child-friendly spaces.
 First requirement is a thorough needs assessment, including educational challenges and
needs. Based on this needs assessment and a fundraising and communication briefing, a
quick proposal including budget is developed. Edukans guarantees quick approval and
response time.
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