Irish Red Cross RFL strategy

Restoring
Family Links
Strategy 2011-2016

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

Contents
Foreword 6
Acknowledgements 7
Executive Summary 8
Glossary 9
Introduction 12
Context 14
Restoring Family Links Roles
and Responsibilities 18
Work of the Irish Red Cross
Restoring Family Links Unit 19
Purpose and Structure of the
RFL Strategy 20
The Restoring Family Links Vision 21
Challenges 21
Strategic Approach 21
RFL Strategic Actions 24
Summary of Restoring Family
Links Strategic Actions:
Milestones 32
Implementation 32
Breakdown of Demand for Irish Red
Cross RFL Services 2005-2009 33
Monitoring and Evaluation of
Implementation of the Strategy 34
Conclusion 34
Appendix 1: 35
Appendix 2: 38

Family Reunification

Ali’s Story

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

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

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

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

4

“It was a happy
day when I got the
letter to say they
could come”
Name and photograph changed
to preserve anonymity

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

The Irish Red Cross (IRC) recognises that At the 30th International Conference of the Red
maintaining links with family members is one Cross and the Red Crescent Societies in 2007, the
of the most fundamental rights of any person. Irish Red Cross pledged to promote partnerships
Sometimes, through no fault of our own, these and increase cooperation in the area of Restoring
links become broken and lives get torn apart. Family Links including through raising awareness
Everything must be done to re-establish these and understanding of our RFL services among
links and restore contact between family members. refugees, asylum seekers, migrants and other
Over the next five years, the Irish Red Cross will persons affected by disaster or armed conflict.
embark on the implementation and regionalisation Resolution 4 of the Council of Delegates of that
of our Restoring Family Links (RFL) services at same International Conference adopted an RFL
home, working in collaboration with our volunteers Strategy (and implementation plan) 2008-2018 for
and colleagues in our sister societies. We hope the Movement’s Family Links Network, which is
to provide a service which reflects best practice, comprised of the National Societies tracing services,
serves individual needs with efficiency, compassion the tracing services of the International Committee
and understanding and play our part internationally of the Red Cross (ICRC) Delegations and the
as partners in the RFL activities of the wider Red ICRC’s Central Tracing Agency.
Cross Red Crescent Movement and with Irish
statutory authorities and other bodies in Ireland. As The aim of this 10 year strategy is to improve
an Auxiliary to the Irish Government in the provision the services provided by the Movement’s
of humanitarian services, we will liaise closely with RFL Network in meeting the needs of people
relevant Ministries, and act in accordance with our separated from their families. The Movement has
seven Fundamental Principles. long-standing experience and extensive expertise
in restoring family links. Through our Family Links
Network, we are able to provide services across
national borders in full transparency and with the
consent of the authorities concerned and are best
placed to assist people who are separated from

“The aim
their families, wherever they may be.

In conclusion, the Irish Red Cross must, in this
ever-changing world, continue to respond to

of our
the needs of those who have lost contact with
family members because of armed conflict and
other situations of violence, the increase in the
number of natural and manmade disasters and

strategy is as a consequence of internal displacement
or migration. We must challenge ourselves as
volunteers and staff to offer the most professional

to improve
and efficient service to those who need it,
enabling us to continue to be proud of our
National Society, and the part that it plays both
nationally and internationally in restoring contact

services” between family members.

David J. O’Callaghan, Chairman

6

Restoring Family Links Strategy 2011-2016

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

The extensive research and development of Particular gratitude is also due to Mr. Neville
the RFL Strategy was undertaken by Mr. Philip Jefferies, Head of the International Tracing and
Berman. Philip is but one of 5,600 dedicated Irish Messaging Service (ITMS) at British Red Cross,
Red Cross Volunteers and gave freely of his time and his colleagues for their continued support.
in this piece of work. The Irish Red Cross would
like to acknowledge Philip’s contribution and his At Irish Red Cross in Dublin, special recognition
continued time, professionalism and energetic is due to Jennifer Wilson of the Irish Red Cross
approach in support of the RFL activities of Irish RFL Unit for her often unseen duty of care to all of
Red Cross. those who avail of our RFL services and ensuring
that RFL remains a critical and essential
We would also like to acknowledge the programme at the heart of Irish Red Cross
contribution and advice of our colleagues at activities. A note of thanks too to all the other
the Central Tracing Agency (CTA) & Protection staff and volunteers at Irish Red Cross who have
Division, ICRC: Mr. Olivier Dubois, Deputy Head of been so supportive in developing this strategy.
the CTA and Protection Division, ICRC and to his
colleagues Yves-Jean Dumeril, Head of Project, Finally, recognition is given to the Irish Red
CTA & Protection Division, Dusan Vujasanin, Cross Executive Committee for their vision and
Adviser, CTA & Protection Division, Annika Norlin commitment in highlighting the important role that
Stillhart, CTA & Protection Division, Christina RFL plays in meeting the needs of RFL service
Oberli, Deputy Head of Operations Western clients in Ireland and around the world.
Europe, ICRC. Their contributions are greatly
appreciated.

Thanks also goes to our colleagues at the
International Federation of Red Cross and Red
Crescent Societies (IFRC) for their input into
the strategy: Simon Eccleshall, Head, Disaster
Services Department; Geri Lau, Head, National
Society Development Department and David
Lynch, Disaster Management, IFRC Europe Zone
Office, Budapest.
7

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

1 Restoring Family Links (RFL) is a key role for
all National Red Cross and Red Crescent
7 17 strategic actions are identified as
milestones to be implemented over the
Societies, mandated under the Geneva period 2011-2016. Key features include:
Conventions.
› The regionalisation of our RFL services to
make them more accessible to potential
service users;
2 The Irish Red Cross (IRC) pledged, at the
30th International Conference of the Red › The involvement of IRC volunteers in the
Cross and the Red Crescent, to promote provision of RFL services, particularly in
partnerships and increase our cooperation the regional centres;
in the area of Restoring Family including by
means of promotion of RFL services. › Training of volunteers in RFL activities;
› Collaboration with other National Societies
on RFL activities;
3 The ICRC Restoring Family Link Strategy
2008-2018 provides a valuable template for › Use of new ICRC methods and new
the IRC, particularly since the ICRC and the technologies;
National Societies have to act in concert if
RFL is to be effective. › Launch of a communications initiative to
publicise the IRC’s RFL activities to the
public;
4 The IRC RFL unit has three principal activities
– tracing, messaging, and family reunification
› Development of a fundraising plan of
action for RFL activities;
travel assistance.
› Launch of an RFL information programme
for IRC staff and volunteers;
5 An analysis of tracing requests demonstrates
that such requests relate to conflict and › Closer collaboration with ICRC and IFRC
natural disaster and, since neither is on RFL policy;
predictable, the IRC’s RFL service must
remain in a state of constant preparedness
› Closer collaboration with other Non-
Governmental Organisations (NGOs) to
to cope with unexpected demand.
ensure effective use of resources;

› Provision of advice on State policy and
6 Our RFL vision is to provide a service which
reflects best practice, serving individual
practice in matters related to RFL, in our
role as auxiliary to the national authorities
needs with efficiency, compassion and in humanitarian affairs.
understanding, playing our part as partners
in RFL activities of the Movement, and
working with the statutory authorities and 8 An implementation programme will be
developed in 2011.
other bodies in Ireland.

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

8


Glossary
EU: European Union

CTA: Central Tracing Agency

ICRC: International Committee of the
Red Cross

IFRC: International Federation of Red Cross
and Red Crescent Societies

IRC: Irish Red Cross

NGOs: Non-Governmental Organisations

IOM: International Organization for Migration

RFL: Restoring Family Links

UNHCR: United Nations High Commissioner
for Refugees

9

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


Tracing

Abdul’s Story
I left my country when I was 14 with my
parents and two younger brothers.
My father was in trouble with the police
for not supporting those in power. He told
us we had to leave and go to a new place
where we could live without fear and be all
safe together. He paid a man all the money
we had to take us to Europe.
The man did not say very much but told us to get into
a large truck. We travelled for hours and it was very
hot and we had little food and water. Just before we
reached the border with Turkey the man told us that
we would now be travelling by car. One of the men
took me by the arm and directed me to a different car
to the one my family were in. I told the man I wanted
to be with my parents but he insisted that I travel in
the other car. My father told me not to worry that we
were all going to the same destination. There was
another man and a woman who travelled in the car
with me. We were ahead as we reached the border.
We were allowed to cross but as we travelled on
I saw that the car my family were in had been
stopped. I felt something was wrong. When we
reached our destination the man took us to a room.
He gave us some bread and water. We stayed in that
room for three days until it was safe for us to move
again. I asked the man what had happened to my
parents but he said he didn’t know.

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

After a few months the lady from the Red Cross told
me that they had found my aunt and uncle. I was
excited and happy and talked to them on the phone.
They told me that they had not heard anything about
my family and did not know where they were. I was
able to keep in contact with my aunt and uncle and
thank the Red Cross for their help.
11

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

The proposed strategy is intended to respond to These activities are carried out by the worldwide
the following key challenges: Family Links Network, which involves the
International Committee of the Red Cross (ICRC)1
› The need to act more effectively in partnership and the tracing services of the Red Cross and
within the Red Cross Movement; Red Crescent National Societies.
Respect for the family’s unity goes hand in hand
› The need to adopt new RFL methods and with respect for human dignity. Every year, the
technologies;
ICRC and the Red Cross and Red Crescent
› The need to raise the profile of Irish Red Cross National Societies help hundreds of thousands of
RFL both internally and externally; people (displaced persons, refugees, detainees
and missing persons) to restore family links and to
› The need to relate better to relevant State clarify the fate of missing relatives.
agencies and NGOs;
The Restoring Family Links Strategy for the
› The need to develop outreach services for RFL Movement2 was presented to the 2007 Council of
beneficiaries. Delegates3. The following extracts from speeches
made at this session make a compelling case
“Restoring Family Links” aims to prevent for the Irish Red Cross to play its due role in
separation and disappearance, restore and Restoring Family Links:
maintain contact between family members, and
clarify the fate of persons reported missing. It
involves collecting information about people who
are missing or imprisoned, who have died, as well
as vulnerable people, such as separated children.
It also involves tracing persons unaccounted for,
organising the exchange of family news and the
transmission of documents when normal means
of communication have broken down, organising
family reunifications and repatriations, and issuing
travel documents and attestations.

1 The International Committee of the Red Cross is an independent, neutral organisation ensuring humanitarian protection and assistance
for victims of war and other situations of violence. The ICRC has a permanent mandate under international law to take impartial action
for prisoners, the wounded and sick, and civilians affected by conflict.
2 The 186 National Red Cross and Red Crescent Societies, the International Committee of the Red Cross and the International

Federation of Red Cross and Red Crescent Societies together constitute the International Red Cross and Red Crescent Movement.
3 The Council of Delegates is the body where the representatives of all the components of the Red Cross Red Crescent Movement

(ICRC, IFRC and National Societies) meet to discuss matters which concern the Movement as a whole.

12


“ Despite the significant and often
unpredictable security constraints
facing our staff and volunteers in
“ The suffering of those who have
no news of their families touches
the core of all of us within the
the field, we have been able to Movement. RFL is a key element of
operate across all parts of the the ICRC’s humanitarian mission and
country – creating essential forms a vital part of our action and
humanitarian space for our partnerships with National Societies.
activities. Restoring family links Behind every single RFL activity
crosses any divide, any social, there is an individual with a life and
cultural or political affiliation. It is a family – this is something of which
service that relies on the dedication we must never lose sight…
and commitment of volunteers to
reach out to people affected. …RFL is a responsibility that we all
share. We have a unique role to play

”
To be able to reach out and meet and it is time to do more about it.
the needs of separated people we
have to see ourselves in a broader
Mr. Olivier Vodoz
context than only our own. How
Vice-President of the ICRC
else can we reunite a family when
some of them are in neighbouring
countries or abroad? We rely on

“
both the ICRC and other National
Societies in this Movement The essential human right of
network. retaining links to one’s family is
of increasing importance to the
The importance of the RFL Strategy International Federation and National
is multi-faceted and goes to the Societies at a time when
heart of the issues. It addresses we are witnessing a dramatic
the family needs of victims that increase in the number of natural
are just as important as food and disasters. Each of these disasters

”
security. It covers all our situations contains risks for family separation.
of humanitarian action – from
conflicts to natural disasters to the Mr. Shimelis Adugna
mass movement of populations. Vice-President, International Federation
It calls for individual identification
of family links needs within an

”
environment of collective action.

Dr. Ahmed Hassan
President, Somali Red Crescent Society

13

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

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

”
relevant, other persons affected by disaster or an armed conflict.

Furthermore, in the preamble to Resolution 4 In reaffirming the commitment of the Movement to
of the 30th International Conference of the Red RFL, reinforcing its resolve to stay the leader in this
Cross and Red Crescent, the responsibility of field, and adopting the ICRC Restoring Family Links
each component of the Movement (including the Strategy (and implementation plan) 2008-2018, the
Irish Red Cross as a member of the Movement) preamble calls upon National Societies to:
to help in the restoration or maintenance of
contact between separated members of families
was reiterated. It also recalled that the Central
a promote knowledge and understanding
of this [RFL] Strategy at all levels of their
Tracing Agency 6 (CTA) of the ICRC plays a role respective organisations,
as coordinator and technical adviser to National
Societies – a resource that is thus available to the
Irish Red Cross. b implement the actions outlined in this
Strategy as part of their organisational
strategies and plans at national, regional and
international levels,

c allocate the necessary resources to carry
them out.

4 The International Conference is the supreme deliberative body for the Movement. It gathers the representatives of the components of the
Movement and the representatives of the 194 States (as of October 2010) Party to the Geneva Conventions. Together they examine and
decide upon humanitarian matters of common interest and any other related matter.
5 Norwegian Red Cross collaborates closely with European Union (EU) National Societies.

6 The Central Tracing Agency and Protection Division of the ICRC provides strategic support and professional expertise to field operations

in three areas of activity – protection of the civilian population, protection of people deprived of their freedom and restoring family links; the
latter also covers activities relating to missing persons and their families.

14


The RFL goals of the Irish Red Cross should Strategic Objective 3:
therefore address the strategic objectives
as established in the ICRC Restoring Family
Links Strategy (and implementation plan) Strengthening support for restoring
2008-2018: family links

The Movement is in a unique position to conduct
RFL since it is the only organisation having a
worldwide network with the potential to aid
Strategic Objective 1: affected individuals and populations everywhere.
To lead in the field of RFL, the Movement must
Improving restoring family links place its work on a solid foundation, encourage
and motivate staff and volunteers to adopt its
capacity and performance vision and practices, and improve communication
so as to assume a commanding position in the
Building a Family Links Network that is robust humanitarian sector.
and meets the needs of affected individuals and
populations requires medium and long-term The Movement can enhance its leading role in
investment in order to enhance and effectively RFL by strengthening its components. For the
utilise skills and resources. Building capacity Family Links Network, building capacity means
requires coherent methodology, effective investing in the development and strategic
mobilisation of human resources, training and orientation of RFL activities. The Implementation
systematic exchange of information to ensure that Plan for the RFL Strategy focuses on the following
the best practices are employed. actions:

The Movement must also better understand the
environment in which it works and be able to › Understanding RFL and the related needs of
adapt and fully utilise modern technologies. separated and missing people;

› Strengthening programme ownership for RFL
activities;

› Raising the profile of RFL and enhancing its
positioning;
Strategic Objective 2:
› Improving RFL capability and services;
Enhancing coordination and › Improving cooperation between National
intra-Movement cooperation Societies and across the Network as a whole.

The Movement’s ability to effectively meet the
needs of people separated from their families
depends on the efficiency and effectiveness of
This Irish Red Cross RFL strategy draws heavily
the Family Links Network.
on the ICRC Restoring Family Links Strategy (and
implementation plan) 2008-2018 since the ICRC
Improving capacity to respond rapidly in
strategy effectively provides a template for National
emergencies, enhancing functional cooperation
Societies. While the strategy is consistent with
and coordination within the Movement at all times
the Movement strategy, it is based both on our
and strengthening interaction with the authorities
statutory obligations and on the needs/demands
and other organisations will improve performance
for our services, as evidenced by the consultation
across the Network.
process that has been completed.
As coordinator of the Family Links Network, the
This strategy not only seeks to fulfil the obligations
ICRC draws more than previously on National
made in the pledge but, more importantly, it is
Society contributions to build capacity,
an attempt to ensure that the Irish Red Cross
strengthen regional linkages and share
serves the very real needs of those members of
responsibility for building a stronger Network.
our increasingly multi-national community who are
suffering because the links with their families have
been broken.

15

Family Reunification

Chantal’s Story

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

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

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

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

16

“It was very strange
to be alone here and
I missed my daughter
and desperately
wanted her with me.”

RFL Roles and In addition to its operational responsibilities the
ICRC, through the CTA, coordinates, advises and
Responsibilities 7,8 strengthens the capacity of its partners within the
Movement in RFL matters, promotes consistency
within the Family News Network and provides the
1. Responsibilities of the National Societies with methods and guidelines9.
authorities
The ICRC decides what RFL action is to be taken
in armed conflicts or other situations of violence.
Under international law, everyone has the right to
In other circumstances requiring an international
know what has happened to missing relatives and
effort, it coordinates the activities of the global
to communicate with family members from whom
Family Links Network10, to ensure the most
they have been separated. Primary responsibility
effective possible response to RFL needs.
for ensuring that these rights are respected lies
with State authorities (including armed security
forces) and, in situations of armed conflict,
any other organised armed groups. When the 3. The role of National Societies
authorities (or organised armed groups) do not
fulfil their responsibilities, the National Societies or
The functions of the National Societies are set
the ICRC may offer their services based on their
out in Article 3 of the Movement’s11 Statutes.
respective roles and responsibilities, the relevant
National Societies carry out their humanitarian
legal provisions and in compliance with Movement
activities in conformity with their own statutes
resolutions (see below) and agreements.
and national legislation and act as auxiliaries to
This offer may range from limited support
their national authorities in the humanitarian field.
to authorities to acting as a substitute
Their role is in particular to assist the victims
for them.
of armed conflict as stipulated by the Geneva
Conventions, and the victims of natural disasters
Whatever activities the Movement carries out, the
and other emergencies who need help (Articles
roles and ultimate responsibility of the authorities
3.1 and 3.2). As outlined in Resolution XVI of the
with regards to the population and the rule of law
25th International Conference of the Red Cross
must be fully respected.
and Red Crescent12, National Societies have an
important role as components of the international
network for tracing and reuniting families.
2. The role of the ICRC
National Societies maintain their response as long
as needs exist, and this may extend well beyond
As a neutral and independent organisation,
the end of a conflict, natural or man-made
the ICRC protects and assists the victims of
disaster, or other emergency. National Societies
international and non-international armed
are responsible for incorporating RFL activities
conflicts and other situations of violence.
into their overall plans and they may need to
Article 5.3 of the Movement’s Statutes expands
draw the attention of the public, humanitarian
this role to include other types of situation, and
agencies and governments to the existence and
establishes a permanent basis on which the ICRC
significance of their RFL activities.
can take any humanitarian initiative compatible
with its status as a specifically neutral and
Individual National Societies are responsible for
independent organisation and intermediary.
establishing an effective national RFL network.
They determine what action is to be taken during
The ICRC has the important task of reminding
national disasters and may call on the CTA when
the authorities of their obligations under
the RFL response requires an international effort.
international humanitarian law and other relevant
bodies of law with regard to family links, and
carrying out activities when and for as long as
required and possible.

7 Restoring Family Links in Disasters. Field Manual. ICRC, August, 2009.
8 For details of the legal basis and role of the Movement’s components in RFL, see Appendix.
9 For example, Restoring Family Links: A Guide for National Red Cross and Red Crescent Societies (ICRC, November 2000) and the

Recommendations and Conclusions of the International Conference of Governmental and Non-Governmental Experts on the Missing and
their Families (2003).
10 The Family Links Network is made up of the ICRC (Central Tracing Agency and tracing units in the delegations) and the National

Society tracing services. Also referred to as “the Network”.
11 http://www.icrc.org/Web/eng/siteeng0.nsf/htmlall/statutes-movement-220506/$File/Statutes-EN-A5.pdf

12 http://www.icrc.org/web/eng/siteeng0.nsf/html/57JMDK. The 25th International Conference of the Red Cross, National Societies took

place in Geneva from 23-31 October, 1986.

18

55
66%

66% Restoring Family Links Strategy 2011-2016

Work of the Irish Fig 1: Number of Refugee
Applications 1992 – 2009
Red Cross RFL Unit Source: (Office of the Refugee Applications
The RFL Unit has three principal activities: Commissioner Annual Report 2009)

1992 0
1992 39
1. Tracing Service 1994 2000
1993 91

The Tracing Service brings together close
1996
1994 362 6000
1995 424
relatives who have been separated by armed 1998 8000
conflicts, political upheaval, or natural disasters 1996 1179
such as earthquakes or serious flooding which 2000
1997 3883 10000
have forced people to leave their homes. The Irish 2002
1998 4626 12000
Red Cross works, through this service, to help 1999 7724
people in Ireland and overseas re-establish family 2004 8000
2000 10938
connections. 2006
2001 6000 10325
2002
2008 6000 11634
2003 7900
% 3% 1% 2009 2000 8%
3%
2
2. Messaging Service 20% 2004 4766
2005 4323 8%
18%
The Messaging Service 20%is used in circumstances 2006 4314
of war or natural disasters where family members 2007 3985
5%
have lost contact or people have been taken 2008 3866 18%
prisoner or moved to refugee camps and shelters.
2%
55% 2009 2689
If normal means of communication have broken
5%
down, the Red Cross Messaging Service is often
the only means 2% families to keep in touch.
for Despite the reduced numbers of refugee
55% 73% applications, the level of RFL activity has remained
74%
fairly constant (Figure 2), with a notable increase
in travel assistance – a programme that only
3. Family Reunification Travel commenced in 2007.
Assistance Service 73%
74%
2005
The Family Reunification Travel Assistance Service Fig 2: RFL Activity 69 0
ncy and tracing units in the delegations) and the National Society tracing services. Also referred to as “the Network
102
supports applicants for family reunification in
Source: (IRC statistics)
2006
Ireland (people with refugee status, on low
3% (2) 0% (0) 111 53 0
income, whose families have been granted
13% (13)
3% (3)
visas to travel to Ireland) by interviewing 2007
2005 73 84 6
applicants, liaising with the United Nations High
Commissioner for Refugees (UNHCR) and the 2005 102 69 0
2008
2006
International Organisation for Migration (IOM) and 2006 104 38 16
2007
putting into place all the arrangements which will 111 53 0
3% (2) 2008
allow the applicant’s 0% (0)to travel to Ireland.
family 2009
2007
13% (13) 2009 127 45 18
3% (3) 2010 73 84 6
Tracing Messaging
2008 assistance
Travel
2005
RFL has become more significant in the Irish 104 38 16
48% (45)
context over the last decade (Figure 1) 2006
29% (35) because
2009
of the increased number of refugees. While2007
the numbers have slowed in recent years, 127 45 18
2008
nevertheless, the permanent establishment of 2005 3% (3)
2009 Tracing Messaging Travel assistance
immigrant/refugee families in Ireland will inevitably 2006 0% (0)
2010
lead to the continuing arrival of relatives and with 2007 11% increase overall in RFL activity in Irish
The 3% (2)
that, separation from family elsewhere. While Red Cross between 2005 and 2009 and, more
2008 13% (13)
there is no direct causal relationship between significantly, the 16% increase since 2007 has
immigration and the demand 48% (45)
for RFL services, 29% (35)
2009 achieved without any increase in staffing,
been
29% (35)
nevertheless it is probable that continuing 2010 48% (45)
despite the fact that travel assistance has trebled
immigration will lead to a continuing demand in the last three years. While messaging, which
for the Family Reunification Travel Assistance is the least time-consuming part of RFL, has
Programme and the Family Reunification decreased by 46%, the very time-consuming
2005 97% (98)
13% (13)

29% (35)

48% (45)

Support Programme. tracing work has increased by 74%.
3% (3)

0% (0)

3% (2)

2006 100% (104)
2007 97% (70)
2008 87% (88) 19
2009 71% (87)
2010 52% (49)
)

2007
73 84 6
2008
5 104 38 16
6
2009
7
127 45 18
8
9 Tracing Messaging Travel assistance
0 The following table demonstrates that 50%
of tracing activity is generated by requests Purpose and
originating in Ireland:
Structure of the RFL
Fig 4: Strategy
Source: (IRC statistics)
13% (13) The Restoring Family Links Strategy

29% (35)

48% (45)
will guide the work of the Unit for the next
3% (3)

0% (0)

3% (2)

five years.

This strategy seeks to ensure that the IRC
plays its proper role effectively in restoring
family links as a member of the Red
100% (104)

Cross/Red Crescent Movement.

The specific aims of the RFL strategy are to:
97% (98)

97% (70)

87% (88)

› Define the IRC’s ambitions in respect of RFL;
› Provide a coherent strategic direction for
71% (87)

the IRC’s RFL activities;
52% (49)

› Develop a programme of activities to deliver
the strategy;

› Define the resources required for the
programme of activities and agree
organisational commitment with the
2005

2006

2007

2008

2009

2010

Governing Board;

› Identify and continue to develop the
competencies required to match the
From From strategic direction;
Ireland Abroad › Establish milestones against which this
strategy can be evaluated in 2013 and 2015
NOTE: Actual number of requests are
shown in brackets. › Develop a marketing and communication
plan to ensure understanding and buy-in
of the RFL strategy by our stakeholders;
Irish Red Cross outreach services would clearly
only apply to such requests, and further analysis › Develop a publicity campaign to raise
may be required to determine whether specific awareness amongst those who may require
services should be provided for particular the service;
communities.
› Ensure that the RFL strategy is fully
It is important that the RFL service should integrated with the IRC’s other strategies and
continue to be in a state of preparedness for with the relevant strategies of the Red Cross/
increased demands caused by unforeseen Red Crescent Movement.
conflict and natural disaster, as well as to deal
with the following services which may be
required in the future:

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

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

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

20


The RFL Vision Strategic Approach
The IRC’s vision is to provide an RFL service The following approaches will guide the way
which will reflect best practice. that the strategy is planned, implemented
and resourced over the next five years:
The IRC seeks to serve the needs of those who
have been separated from family with efficiency, Focus:
compassion and understanding of their Activities will be focussed on family reunification
individual needs. and on tracing, since messaging is declining
in importance given the prevalence of mobile
The IRC will play its part as partners in the phones, and we will develop distinct programmes
RFL activities of the Red Cross/Red Crescent for each field.
Movement, both cooperating with other National
Societies and supporting the Movement in Follow up:
the development and implementation of RFL In response to the findings from the survey of
policies. families supported by the Travel Assistance
programme, families who have been reunified
The IRC will also work with the statutory through the IRC will be supported and mentored
authorities and other bodies in Ireland to provide until they are sufficiently well-established in Ireland
support to those who have sought assistance to access and use whichever state services they
from the IRC’s RFL services. are entitled to and require.

Regionalisation and the involvement
of volunteers:
Challenges An analysis of tracing requests demonstrates
that approximately 60% of those requiring RFL
The main challenges facing the successful assistance live outside the Dublin area. Support
implementation of the RFL strategy – which will therefore be provided both to reunified
can also be seen as opportunities - include: families and to those requesting tracing services
by providing services as close to their homes as
› To always be sensitive to, and continuously possible rather than only at IRC headquarters
develop our understanding of, the actual and in Dublin. This will require the commitment and
potential nature of, and demand for, RFL involvement of volunteers, who will have to
services; receive specific RFL training.

› Ensuring that the resources are available Best practice:
to meet the needs and demands for RFL, RFL services provided by the IRC will meet
particularly in a time of significant resource best international standards. In order to achieve
constraints; this, there will be close collaboration with other
National Societies that are considered to be
› Achieving “buy-in” from our volunteers that this
examples of best RFL practice, and with the ICRC
aspect of the IRC’s activities is an important
and the IFRC. The IRC will also seek to provide
part of the IRC’s mission;
best practice leadership, particularly in relation to
› Engaging the IRC volunteers in supporting RFL the follow-up of reunified families.
clients around the country;
Partnership:
› Engaging effectively with the statutory In additional to the collaboration with the ICRC
authorities in supporting the RFL clients; and other National Societies, partnerships will be
developed with other organisations, particularly
› Collaborating effectively with non-statutory, in Ireland, which provide related services. Such
voluntary organisations which have similar or partnerships should be aimed both at capacity-
complementary objectives; building and ensuring the most effective use of
› Playing an appropriate role as a RFL partner in resources.
the Red Cross/Red Crescent Movement.
Humanitarian diplomacy:
In its role as Auxiliary to the national authorities in
humanitarian affairs, the IRC will seek to inform
State policy and practice on matters related to RFL.

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

21

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


Tracing

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

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

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

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

23

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

ICRC Strategic Objective 1:
Improving restoring family links capacity and performance

ICRC Action 1:

Develop capacity for assessing IRC Strategic Actions
RFL needs and planning
The IRC has carried out a needs assessment
operational response based on a survey of family reunification
between 2007 and 2009, and a desk-based
RFL needs and the capacity to meet them must analysis of tracing requests (2005-2009) has
be systematically and meticulously assessed. also been completed. This strategy is intended
The Movement must regularly review and adapt to address the needs identified in these surveys
its services to account for needs, capacities, and, in particular, to develop the capacity of the
resources and the operational context. IRC to respond to the identified needs.

1. In 2011-2012, an analysis of the role
and activities of authorities and other
Implementation organisations in the field will be carried out
The National Societies will: in order to determine how the IRC might
best collaborate with them
1.1.1 Undertake, in consultation with the
affected individuals, populations and
other concerned parties, comprehensive
RFL assessments incorporating: 1.1.2 Develop operational plans to meet the
needs of affected populations and respond
› existing and potential populations in need to enquiries from within the Family Links
of RFL assistance (RFL core activities Network. Plans should include systematic
and interconnected activities); consultations with beneficiaries and
review of RFL action, and consider, where
› the capacity of the National Society or necessary, combining RFL activities with
the ICRC to respond; other programmes (e.g. health, social-
welfare, disaster preparedness and
› the role and activities of authorities and response, first aid).
other organisations in this field.

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

24


ICRC Action 2: ICRC Action 3:

Enhance RFL response through Develop and utilise
training and information exchange comprehensive guidelines and
tools for building RFL capacity
To improve performance and build professional
practices, it is important to develop the Restoring family links across a range of diverse
knowledge and skills required for RFL. Greater situations of humanitarian concern requires
awareness of the connections between RFL common guidelines and tools for building
and other Movement programmes leads to coherent methods, practices and understanding
better service. across the Network. To measure performance
and ensure that services are of high quality
Investing in professional development for staff and truly benefit those in need, performance
and volunteers will have a direct, positive indicators, monitoring and evaluation tools must
impact on performance and enhance the be used.
Movement’s credibility.

Implementation
Implementation
The National Societies will:
1.3.1 Regularly collect, by 2013, data on RFL
1.2.1 Devise and run training programmes for using the Family Links Network data
professional staff and volunteers covering collection tool and analyse that data to
RFL response to national needs and to ensure high-quality service and optimum
requests from the Family Links Network. use of resources.
RFL will be incorporated into training
programmes for volunteers wherever 1.3.2 Establish, by 2013, processes for
possible. the monitoring and evaluation of RFL
activities, using the Family Links Network
1.2.2 Develop RFL programmes to supervise performance management tools.
and support RFL practitioners at
headquarters and in the branches. 1.3.3 Develop, by 2013, RFL guidelines and
tools adapted to the context and culture,
1.2.3 Carry out staff exchanges, programme in accordance with the Restoring Family
visits or internships involving other Links Manual for the Movement and
National Societies, convey useful the Family Links Network performance
practices and build an understanding of management tools.
RFL across a variety of contexts.
1.3.4 Disseminate, by 2014, RFL guidelines
and tools throughout their headquarters
and branches.

IRC Strategic Action:
2. In 2012, a training programme will be
established, particularly for volunteers,
to enable regional RFL centres to be
established. These regional RFL centres IRC Strategic Action:
will bring RFL services closer to clients,
and will also provide the focal points for the 3. In 2013-14, the IRC will be using the
Family Reunification Support Programme. Family Links Network data collection tool
These training programmes will be run in and the performance management tools
collaboration with other National Societies as to collect data on RFL and to monitor and
part of closer collaboration on RFL activities. evaluate RFL activities.

25


Build the capacity to assess, Increase resource mobilisation
adapt and incorporate technology and support for RFL activities
for greater programme efficiency
In order to support the development and
The Movement’s components use methods and delivery of RFL activities, the Movement’s
technologies adapted to the context. To ensure components must better utilise the resources
that the Network is responsive and effective, they have and increase the resources at their
they use electronic data transmission, mobile disposal. All the components can boost their
computers, database systems, the Internet, and ability to raise funds. In addition to financial
new technologies. Modern technologies are resources, the Movement will better identify
assessed and integrated to provide increasingly the skills, capacities and contributions that the
professional, targeted and innovative services, various components need to share. In this way,
and thus improved response. resources can be better utilised across the
Network.
All RFL activities must ensure the protection
of individual data and of any other sensitive
information, at all times. The confidentiality of Implementation
personal and other sensitive data is paramount The National Societies will:
and the principles for their protection must be
respected by all. 1.5.1 Ensure cooperation between fundraising,
communication and tracing services
and develop plans of action to raise
funds for RFL that are part of the overall
Implementation fundraising policy.
1.5.2 Share with each other information and
1.4.1 Ensure that their tracing services best practices regarding fundraising.
have access to the Internet and
other technologies that help improve 1.5.3 Allocate core funds to develop and
performance. maintain RFL, and assess diversified
funding sources.
1.4.2 Share with the ICRC applications or
technologies developed for RFL. 1.5.4 Incorporate RFL in their regular
fundraising appeals.
1.4.3 Contribute, by 2012 and in cooperation
with the ICRC, to the appraisal and 1.5.5 Participate, in 2008, 2011, 2014
development of new RFL methods and and 2017, in the RFL contributions
technologies. assessment that will identify the skills,
capacities, time and resources that can
1.4.4 Approach the CTA to use the ICRC’s be shared across the Network.
Family Links website for RFL response in
major natural or manmade disasters.

IRC Strategic Action: IRC Strategic Action:
4. From 2011, IRC will collaborate with 5. In 2011, the IRC will develop a plan of
ICRC on the development, application, action to raise funds for RFL activities.
and appraisal of new RFL methods and 6. In 2014, the IRC will participate in the
technologies. RFL contributions assessment.

26


Enhancing coordination and intra-Movement cooperation

ICRC Action 1:

Improve the Movement’s Implementation Measures
rapid-response capacity for The National Societies will:

emergencies 2.1.1 Incorporate RFL action in emergency-
preparedness and response plans in
Increasingly major and complex emergencies, accordance with ICRC guidelines for
combined with varying capacities for RFL RFL response in natural or manmade
response within the Movement, require better disasters, and ensure appropriate
coordinated and faster response. Reducing the training for all first responders.
time taken to assess needs and deliver RFL
activities is essential for effectiveness. Taking 2.1.2 In national disasters, call on the ICRC
into account that RFL operational activities are without delay for support where the
coordinated by: need for RFL outstrips their capacity.

2.1.3 In accordance with the Framework
› The ICRC in conflicts and other situations
for the Deployment of International
of violence or in disasters requiring an
RFL Specialists during Disasters,
international response,
provide the ICRC/CTA with trained
› Individual National Societies during national RFL specialists for rapid deployment.
disasters, and Such specialists for rapid deployment
will be taken from a predefined pool
› The ICRC at the request of the National Society only with the agreement of each
where the RFL response is beyond the latter’s National Society.
capacity during national disasters, greater
emphasis must be placed on a rapid and 2.1.4 Assess, by 2011, the need for, and
feasibility of, establishing National
› Coordinated response, making better use of Society sub-regional focal points for
Movement resources and experienced RFL RFL response in natural or man-made
specialists. disasters. If deemed useful, establish
such RFL focal points.

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

27


Strengthen coordination within Strengthen Movement cooperation
the Family Links Network through the increased flow
of resources and knowledge
Harmonising the Movement’s work to provide
an internationally consistent response over between National Societies
the short, medium and long terms requires
participation by all components. This should High-quality RFL in both emergency situations
not be a static exercise – coordination and stable environments means involving different
requires increased interaction, the exchange components of the Family Links Network at
of information, the identification of issues and different times. The Network’s resources are
the building and retention of RFL knowledge. better utilised and cooperation strengthened if
Employing a specific regional focus, enhance the National Societies play a greater role in RFL
services and make better use of existing capacity building (within an agreed framework).
knowledge and skills within the Family Links
Network.
Implementation

Implementation 2.3.1 Contribute, by 2009 and in coordination with
The National Societies will: the ICRC, to a framework for partnerships
addressing the international involvement of
2.2.1 Contribute to greater regional National Societies in programmes to build the
coordination in RFL by prioritising this capacity of tracing services.
subject in regional forums, strengthening
the exchange of information and best 2.3.2 Use, commencing in 2010 and for all
practices with other National Societies international RFL, the ICRC’s capacity-
and the ICRC/CTA, and building stronger building framework for RFL together with
links with other National Societies in their National Societies.
respective regions. 2.3.3 Contribute, by 2011 and in cooperation
with the ICRC, to the development of
2.2.2 Seek to harmonise criteria for the training modules for RFL capacity building.
acceptance of RFL cases, ensuring
that they take into account regional 2.3.4 Increase the availability and training of,
particularities. and support for, experienced RFL staff to
create a pool of capacity-building experts
for international work.

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

IRC Strategic Actions:
IRC Strategic Actions:
10. From 2011, the IRC will adopt the
8. In 2011, the IRC will establish a close ICRC’s capacity-building framework.
working relationship with a relevant 11. From 2011, the IRC will contribute to
National Society in relation to the the development of training modules for
implementation of the IRC RFL strategy. RFL capacity building.
9. From 2011, the IRC will begin to take part, 12. In 2013, the IRC will explore the training
on a regular basis, in the ICRC annual RFL and provision of experienced RFL staff
meeting and meetings of PERCO (Platform for international work.
for European Red Cross Cooperation on 13. From 2011, the IRC will strengthen
Refugees, Asylum Seekers and Migrants). engagement in bilateral contacts with
tracing services of other National Societies.

28


ICRC Action 4:

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

Implementation

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

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

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

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

2.4.5 Review national legislation to ensure
that family links issues are included
in national disaster-preparedness and
response plans, and engage with IRC Strategic Actions:
State authorities for their inclusion
where necessary. This should include 14. In 2011-12, the IRC will conduct a
ensuring that such plans set out the detailed review of its relationship with
role of the National Society in restoring state authorities and will then develop
family links. policies with regard to its relationships
with these bodies.
15. In 2011-12, the IRC will conduct a similar
review of other organisations providing
related RFL services in order to ensure
better use of resources.
16. In 2013, a review of national legislation
will be carried out.

29

Strengthening support for restoring family links


Build a strong organisational Enhance Movement support
foundation for RFL activities in all for and understanding of RFL
situations and contexts activities through internal
promotion
The Movement’s ambition is to lay a solid
foundation for RFL. Much remains to be Making RFL responsibilities and action better
done for its components to shoulder their known among the Movement’s components will
responsibility in this field. The process of increase both understanding and support. Since
revising both National Society statutes and the RFL needs are inadequately communicated
policy frameworks of the various components to within the Network, continuous effort is required
reflect RFL signals a commitment to improving to raise awareness and pool information. This
RFL activities and working toward a consistent will lead to National Society leaders feeling a
response to needs. So too does the effort to greater sense of direct responsibility for RFL
improve service development and management. activities and to volunteers and staff better
identifying needs, and to a more integrated
response.
Implementation
Implementation
3.1.1 Define their precise RFL roles and The National Societies will:
functions in the different situations
that may arise, taking into account the 3.2.1 Keep governing bodies, volunteers and
Movement’s resolutions. staff informed about the RFL roles of
the National Society and the Family
3.1.2 Revise their Statutes, in accordance with Links Network.
the International Federation’s Guidance for
National Society Statutes, to reflect their 3.2.2 Incorporate RFL news in meetings and
RFL roles and responsibilities as defined in other means of disseminating
the Movement’s Statutes and resolutions. information within the organisation.

3.1.3 Create or revise national strategic and 3.2.3 Strengthen relationships between
development plans to include national communication departments and
and international RFL activities. tracing services and draw up plans of
action for publicly promoting this work.
3.1.4 Establish operational links between tracing
services, disaster-preparedness and 3.2.4 Regularly communicate to governing
disaster response programmes, volunteer bodies, staff and volunteers the
management and other relevant units outcomes and commitments
such as dissemination and information. regarding RFL of the Movement’s
statutory meetings.
3.1.5 Develop an internal system to support RFL,
including management, service development
and involvement of volunteers.
IRC Comment: 17. In 2011, an information programme will
be developed, for staff and volunteers,
This strategy provides the basis for building to ensure that the IRC’s RFL activities are
a strong organisational foundation for RFL effectively connected to the other activities
activities amongst management, staff and of the Irish Red Cross. This strategy
volunteers document will form a key part of this process.

30

Irish Red Cross RFL strategy

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