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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 196 | ampliamente reconocidos en la Constitución del 2008, donde además, se definen las obligaciones del Estado para asegurar el reconocimiento y pleno ejercicio de derechos y eliminar las condiciones de desigualdad estructural entre estos grupos.
3.1.1 Institucionalidad estatal e igualdad intergeneracional El enfoque generacional e intergeneracional se concentra en el ciclo de vida de las personas, reconoce la existencia de necesidades específicas en la niñez, adolescencia, juventud y adultez 26; y, establece la prioridad de identificar y tratar las vulnerabilidades y fortalezas en cada una de estas etapas 27. Por otro lado, hace énfasis en el debido reconocimiento y protección a los derechos específicos propios de las diferentes edades, para asegurar
26 De acuerdo a la Agenda Nacional para la Igualdad Intergeneracional, estos grupos de población comprenden los siguientes rangos etarios: Niñas y Niños, de 0 a 11 años; Adolescentes, de 12 a 17 años; adultos de 18 a 29 años; y, adultos | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 197 | derechos específicos propios de las diferentes edades, para asegurar
26 De acuerdo a la Agenda Nacional para la Igualdad Intergeneracional, estos grupos de población comprenden los siguientes rangos etarios: Niñas y Niños, de 0 a 11 años; Adolescentes, de 12 a 17 años; adultos de 18 a 29 años; y, adultos mayores, aquellas personas que han cumplido 65 años o más.
27 LOEI, 2011. art. 8, literal d. su ejercicio pleno. En el campo de la seguridad ciudadana y convivencia social pacífica este enfoque busca identificar los tipos y ámbitos de violencia que aquejan a la población durante la niñez y adolescencia, así como en la tercera edad; y los delitos más comunes en los que pueden participar o ser propensos de ser víctimas, para responder con acciones de prevención y protección derechos adecuadas a cada grupo etario. Respecto a los y las niñas y adolescentes, este enfoque hace énfasis en atender | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 198 | así como en la tercera edad; y los delitos más comunes en los que pueden participar o ser propensos de ser víctimas, para responder con acciones de prevención y protección derechos adecuadas a cada grupo etario. Respecto a los y las niñas y adolescentes, este enfoque hace énfasis en atender el interés superior y sus derechos como víctimas, conforme a los derechos humanos. La aplicación de estos conceptos de generacionalidad e intergeneracionalidad suponen una innovación en el marco Constitucional. A diferencia de la interpretación tutelar que identificaba a los “menores de edad” como personas no aptas para su trato cotidiano con la sociedad y susceptibles de control absoluto por parte de los adultos, el enfoque de protección de derechos que se diseñó alrededor de la niñez y adolescencia - y que en el Ecuador dio forma al Consejo Nacional de Niñez y Adolescencia, antecedente institucional del actual Consejo Nacional para | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 199 | con la sociedad y susceptibles de control absoluto por parte de los adultos, el enfoque de protección de derechos que se diseñó alrededor de la niñez y adolescencia - y que en el Ecuador dio forma al Consejo Nacional de Niñez y Adolescencia, antecedente institucional del actual Consejo Nacional para la Igualdad Intergeneracional 28(también denominado CNII) – toma como eje central la calidad de sujetos sociales de la niñez y adolescencia, comprendiendo que lo que ha de ser protegido es el justo acceso de estos
28 Consejo Nacional para la Igualdad Intergeneracional, es una entidad cuya naturaleza y funciones están descritas en el Artículo 156 de la Constitución, que define a los consejos para la igualdad como los órganos responsables de asegurar la plena vigencia y el ejercicio de los derechos consagrados en la Constitución y en los instrumentos internacionales de derechos humanos. Las atribuciones en la formulación, transversalización, observancia, seguimiento | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 200 | en el Artículo 156 de la Constitución, que define a los consejos para la igualdad como los órganos responsables de asegurar la plena vigencia y el ejercicio de los derechos consagrados en la Constitución y en los instrumentos internacionales de derechos humanos. Las atribuciones en la formulación, transversalización, observancia, seguimiento y evaluación de las políticas públicas relacionadas con las temáticas de género, étnicas, generacionales, interculturales, de discapacidades y movilidad humana, están normadas en la Constitución y en la Ley Orgánica de los Consejos Nacionales para la Igualdad y su Reglamento, disponiendo además que, para el cumplimiento de sus fines, se coordinarán con las entidades rectoras y ejecutoras de política y con los organismos especializados en la protección de derechos en todos los niveles de gobierno. Se encarga de describir la situación de cada uno de los grupos generacionales y proponer las políticas más importantes para incidir en las condiciones que | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 201 | coordinarán con las entidades rectoras y ejecutoras de política y con los organismos especializados en la protección de derechos en todos los niveles de gobierno. Se encarga de describir la situación de cada uno de los grupos generacionales y proponer las políticas más importantes para incidir en las condiciones que generan las problemáticas encontradas, a través de Agendas dirigidas hacia todos los niveles de gobierno, propone lineamientos y orientaciones metodológicas para su transversalización, seguimiento y evaluación. Mientras la transversalización implica acompañar a las instituciones a la adecuada incorporación de las política de la Agenda en sus planes, programas y servicios; el seguimiento y la evaluación suponen la generación continua de información para verificar la implementación de la Agenda, así como sus impactos y resultados (Consejo Nacional para la Igualdad Intergeneracional, 2018). 84 85
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 202 | el seguimiento y la evaluación suponen la generación continua de información para verificar la implementación de la Agenda, así como sus impactos y resultados (Consejo Nacional para la Igualdad Intergeneracional, 2018). 84 85
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
grupos poblacionales a sus derechos, en lugar de mantener
sobre ellos un control indiscriminado que invisibilice o los deje sin voz. Con la finalidad de operativizar esta nueva perspectiva en materia de derechos y generación de nueva política pública, se establecieron planes —Plan Decenal de Protección Integral de la Niñez y Adolescencia 2004-2014, se fortalecieron acciones para la implementación del Sistema Nacional Descentralizado de Protección Integral y se crearon agendas: —Agenda Social de la Niñez y Adolescencia “Juntos por la equidad desde el principio de la vida” 2007–2010, la Agenda para la Igualdad de la Niñez y la Adolescencia 2012-2013, la Agenda de Igualdad | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 203 | fortalecieron acciones para la implementación del Sistema Nacional Descentralizado de Protección Integral y se crearon agendas: —Agenda Social de la Niñez y Adolescencia “Juntos por la equidad desde el principio de la vida” 2007–2010, la Agenda para la Igualdad de la Niñez y la Adolescencia 2012-2013, la Agenda de Igualdad para la Juventud 2012-2013, la Agenda de Igualdad para los Adultos Mayores 2012-2013 y la Agenda Nacional para la Igualdad Intergeneracional 2013-201729. Como se puede observar, la emergencia de los niños, niñas y adolescentes como sujetos políticos con voz propia dentro del contexto de gestión de lo público del Estado ecuatoriano, ha sido fruto de discusiones y replanteamientos acerca del modelo de infancia sobre el que se hace referencia, así como de la apertura de espacios para la reorientación de esta categoría social, sin que esto haya significado todavía la solución por completo de los desafíos propuestos por una realidad | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 204 | ecuatoriano, ha sido fruto de discusiones y replanteamientos acerca del modelo de infancia sobre el que se hace referencia, así como de la apertura de espacios para la reorientación de esta categoría social, sin que esto haya significado todavía la solución por completo de los desafíos propuestos por una realidad ecuatoriana en la que las intersecciones con el género, la multiculturalidad y la clase tornan impracticable la perspectiva aplicada durante los dos siglos anteriores, referentes a la universalización, homologación y homogeneización de la diversidad bajo un supuesto de unificación nacional. Es por ello, que en la actualidad, la aplicación de las políticas públicas encaminadas a la infancia, adolescencia y adultos mayores por parte del CNII que recoge la actual Agenda para
29 Elaborada en el 2013 por el CNII, con el apoyo técnico de la dirección de políticas públicas de la Secretaría Nacional de Planificación y Desarrollo SENPLADES.
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 205 | las políticas públicas encaminadas a la infancia, adolescencia y adultos mayores por parte del CNII que recoge la actual Agenda para
29 Elaborada en el 2013 por el CNII, con el apoyo técnico de la dirección de políticas públicas de la Secretaría Nacional de Planificación y Desarrollo SENPLADES.
la Igualdad Intergeneracional 2017-2021 30, se concentra en los ejes de salud, educación, protección, participación, vivienda y hábitat y trabajo. Estas agendas han sido construidas con la finalidad de convertirse en instrumentos de articulación de la política pública31, en un intento por transversalizar la priorización en la atención a los grupos hacia los que han sido enfocadas. En lo que al Plan de Seguridad Ciudadana y Convivencia Social Pacífica concierne, se hace relevante tomar en cuenta lo que el abordaje integrado propone como avances frente a la óptica de los grupos etarios como conjuntos aislados:
1. Tomar como punto de partida el cumplimento de los | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 206 | han sido enfocadas. En lo que al Plan de Seguridad Ciudadana y Convivencia Social Pacífica concierne, se hace relevante tomar en cuenta lo que el abordaje integrado propone como avances frente a la óptica de los grupos etarios como conjuntos aislados:
1. Tomar como punto de partida el cumplimento de los derechos y no asumir la política pública y su gestión como solución a problemas aislados. 2. Romper la mirada sectorial a la hora de elaborar las políticas públicas, comprendiendo las problemáticas sociales que se encuentran detrás de las competencias encargadas a cada institución, de tal manera que se puedan crear sinergias e intersecciones pertinentes.
3. Asumir que la elaboración de la política tiene un elemento técnico, muy importante porque le otorga elementos de la realidad verificables y esto le otorga validez, pero también tienen un componente político significativo, entendido lo político como la voluntad de la autoridad en la toma de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 207 | sinergias e intersecciones pertinentes.
3. Asumir que la elaboración de la política tiene un elemento técnico, muy importante porque le otorga elementos de la realidad verificables y esto le otorga validez, pero también tienen un componente político significativo, entendido lo político como la voluntad de la autoridad en la toma de decisiones que le permite mirar el contexto general en que se desarrollan los sujetos de derechos.
30 La Agenda para la Igualdad Intergeneracional 2017-2021, consta de cuatro capítulos: 1. Fundamentos generales, donde se exponen los marcos normativos, de planificación y conceptual, y se explica la metodología de trabajo utilizada para en la construcción del documento. 2. Diagnóstico, que describe la situación de desigualdad de niñas, niños, adolescentes, jóvenes y personas adultas mayores en relación a sus derechos. 3. Propuesta, contiene los planteamientos realizados de políticas y las acciones realizadas sobre la base del diagnóstico. 4. Modelo de gestión, plantea la identificación | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 208 | la construcción del documento. 2. Diagnóstico, que describe la situación de desigualdad de niñas, niños, adolescentes, jóvenes y personas adultas mayores en relación a sus derechos. 3. Propuesta, contiene los planteamientos realizados de políticas y las acciones realizadas sobre la base del diagnóstico. 4. Modelo de gestión, plantea la identificación de responsables y mecanismos de coordinación con los ministerios y secretarías de Estado para la incorporación de las propuestas. 31 La Agenda Nacional para la Igualdad Intergeneracional es uno de los instrumentos centrales del Sistema Nacional Descentralizado de Planificación Participativa (SNDPP). Junto con el Plan Nacional de Desarrollo, debe ser parte de la planificación de todas las entidades del sector público en todos los niveles de gobierno, y de referencia para las entidades no estatales. Su objetivo es garantizar el cumplimiento de derechos, reducir las brechas de desigualdad y erradicar la discriminación hacia los grupos generacionales, con atención a jóvenes | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 209 | parte de la planificación de todas las entidades del sector público en todos los niveles de gobierno, y de referencia para las entidades no estatales. Su objetivo es garantizar el cumplimiento de derechos, reducir las brechas de desigualdad y erradicar la discriminación hacia los grupos generacionales, con atención a jóvenes y adultos mayores, y con prioridad absoluta para niñas, niños y adolescentes. 86 87
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
4. Estimar a la ciudadanía como sujeto de derechos y por tanto, eje del accionar de toda política pública. Tomando en cuenta el enfoque del Plan y su visión de prevención y acción sobre las causas, además de sobre los efectos de la violencia y la inseguridad, es preciso fortalecer el compromiso de no incrementar las sanciones, sino de trabajar mediante redes interinstitucionales. En este sentido, el Estado ecuatoriano cuenta ya con | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 210 | el enfoque del Plan y su visión de prevención y acción sobre las causas, además de sobre los efectos de la violencia y la inseguridad, es preciso fortalecer el compromiso de no incrementar las sanciones, sino de trabajar mediante redes interinstitucionales. En este sentido, el Estado ecuatoriano cuenta ya con un historial reciente pero efectivo de trabajo mancomunado y coordinado en torno a la prevención de la violencia hacia las mujeres, mediante la implementación del Registro Único de Violencia, en donde participan, como principales actores responsables el Ministerio del Interior, Ministerio de Salud Pública, Secretaría de Derechos Humanos, Consejo de la Judicatura, Defensoría Pública, Defensoría del Pueblo, ECU 911, Ministerio de Educación, Pueblos y Nacionalidades, entre otros. Esta estrategia – amparada además por una estructura tecnológica y técnica de avanzada – no apunta solamente al registro de las víctimas, a la manera de cifra estadística de control, sino que busca | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 211 | la Judicatura, Defensoría Pública, Defensoría del Pueblo, ECU 911, Ministerio de Educación, Pueblos y Nacionalidades, entre otros. Esta estrategia – amparada además por una estructura tecnológica y técnica de avanzada – no apunta solamente al registro de las víctimas, a la manera de cifra estadística de control, sino que busca profundizar el conocimiento del fenómeno para viabilizar propuestas de acción más efectivas para la erradicación de la violencia contra la mujer. Es por esta perspectiva ampliada que la adaptación del mismo sistema sería una alternativa de aplicación pertinente para intervenir, prevenir y acompañar los casos de violencia hacia las niñas, niños y adolescentes. Cabe enfatizar en la existencia de las unidades especializadas de la Policía Nacional para atender casos relacionados con la niñez y juventud, a través de la Dirección Nacional de Policía Especializada en los casos referidos a Niños, Niñas y Adolescentes (DINAPEN) y el Departamento de Violencia Intrafamiliar | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 212 | niños y adolescentes. Cabe enfatizar en la existencia de las unidades especializadas de la Policía Nacional para atender casos relacionados con la niñez y juventud, a través de la Dirección Nacional de Policía Especializada en los casos referidos a Niños, Niñas y Adolescentes (DINAPEN) y el Departamento de Violencia Intrafamiliar (DEVIF) competente en violencia intrafamiliar.
3.2 Fenómenos multicausales de la violencia en los diversos grupos etarios
3.2.1 La violencia hacia niños y niñas La violencia hacia niñas, niños y adolescentes constituye una vulneración a los derechos humanos fundamentales y, por ello, todas las instituciones del Estado, asumen como compromiso y prioridad avanzar hacia la prevención y erradicación de los diversos tipos de violencia, cada uno desde sus ámbitos de trabajo. La participación activa de los actores políticos y sociales en la prevención y erradicación de la violencia es importante, porque busca prevenir el abuso del poder y el uso de mecanismos autoritarios | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 213 | hacia la prevención y erradicación de los diversos tipos de violencia, cada uno desde sus ámbitos de trabajo. La participación activa de los actores políticos y sociales en la prevención y erradicación de la violencia es importante, porque busca prevenir el abuso del poder y el uso de mecanismos autoritarios que podrían iniciar en la familia. En este punto, cabe apreciar a la familia como único punto de anclaje de la legitimidad ciudadana y el acceso a derechos, sin embargo ha sido y es firmemente cuestionada al no constituir un espacio en el que los criterios de seguridad, afectividad y respeto puedan ser plenamente garantizados para los niños, niñas y adolescentes. Es por ello que para el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica es de vital importancia comprender que la seguridad de los niños, niñas, adolescentes, jóvenes y adultos mayores se ve alterada por fenómenos estructurales. De | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 214 | respeto puedan ser plenamente garantizados para los niños, niñas y adolescentes. Es por ello que para el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica es de vital importancia comprender que la seguridad de los niños, niñas, adolescentes, jóvenes y adultos mayores se ve alterada por fenómenos estructurales. De aquí que la presente política pública estime los fenómenos relacionados con la violencia a los grupos vulnerables, siendo una preocupación neurálgica la divulgación, capacitación y educación adecuada de los cuerpos especializados en hacer cumplir la ley –es decir, la Policía Nacional, principalmente–, para que puedan convertirse en agentes de formación de la ciudadanía, siendo los primeros en poner en práctica los principios constitucionales de no discriminación y respeto a las diversidades. 88 89
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Desde este punto de vista, el catálogo de violencias que involucran a | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 215 | de la ciudadanía, siendo los primeros en poner en práctica los principios constitucionales de no discriminación y respeto a las diversidades. 88 89
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Desde este punto de vista, el catálogo de violencias que involucran a niños, niñas y adolescentes, constituye una imagen preocupante, que contrasta fuertemente con los avances institucionales dados por el Ecuador. Es así que el estudio Niñez y Adolescencia desde la Intergeneracionalidad (2016)32, revela una prevalencia importante del trabajo infantil en la Sierra (10%), en la zona rural (13%) y en la población indígena (18%), develando una continuidad histórica de discriminación hacia los grupos indígenas, agravadas por fenómenos como la trata de niños para su explotación en la mendicidad. El mismo estudio expone también que casi el 40% de los niños, niñas y adolescentes que fueron golpeados en sus hogares, provienen de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 216 | población indígena (18%), develando una continuidad histórica de discriminación hacia los grupos indígenas, agravadas por fenómenos como la trata de niños para su explotación en la mendicidad. El mismo estudio expone también que casi el 40% de los niños, niñas y adolescentes que fueron golpeados en sus hogares, provienen de hogares en los cuales sus padres también fueron maltratados por sus cuidadores. Y, por otra parte, el 30% afirma que ven a sus padres relacionarse con violencia, porcentaje que se incrementa al 40% en la Amazonía. El tipo de violencia en el hogar reportado destaca que casi el 40% de los niños, niñas y adolescentes afirmaron haber recibido un trato violento por parte de sus padres, y esta incluía golpes, baños de agua fría, insultos, burlas, y otras formas, como dejarlos sin comer y sacarlos de la casa. Los más afectados son los niños y niñas entre los 5 y | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 217 | los niños, niñas y adolescentes afirmaron haber recibido un trato violento por parte de sus padres, y esta incluía golpes, baños de agua fría, insultos, burlas, y otras formas, como dejarlos sin comer y sacarlos de la casa. Los más afectados son los niños y niñas entre los 5 y 12 años, franja en la que casi el 50% fue agredido física y psicológicamente. La mayor prevalencia de la violencia contra los niños en el hogar se registra en la zona rural 42% vs. la urbana que es de 36%. En cuanto a las etnias, la más afectada es la población infantil afroecuatoriana (52%), le sigue la indígena (48%) y luego la mestiza (34%) (Niñez y Adolescencia desde la intergeneracionalidad, 2015).
32 El estudio “Niñez y Adolescencia desde la Intergeneracionalidad” (2016), brinda una mirada de los últimos 15 años, sobre la situación de los niños, niñas y adolescentes del Ecuador, y | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 218 | población infantil afroecuatoriana (52%), le sigue la indígena (48%) y luego la mestiza (34%) (Niñez y Adolescencia desde la intergeneracionalidad, 2015).
32 El estudio “Niñez y Adolescencia desde la Intergeneracionalidad” (2016), brinda una mirada de los últimos 15 años, sobre la situación de los niños, niñas y adolescentes del Ecuador, y recoge, al mismo tiempo, datos actuales que permiten identificar los avances y desafíos presentes. Esta publicación recoge datos de una encuesta cuya muestra fue de 4.000 hogares tanto de zonas urbanas como rurales, y recoge más de 150 indicadores que describen las condiciones en cuanto al entorno familiar, educación, protección, salud, participación y felicidad. Se deduce, por tanto, la existencia de un traspaso intergeneracional del maltrato, lo que muestra un tejido social íntimamente afectado en su capacidad profunda para vincularse afectiva, cognitiva y motivadamente con objetivos personales y políticos que permitan la ampliación de los horizontes futuros del Estado que | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 219 | salud, participación y felicidad. Se deduce, por tanto, la existencia de un traspaso intergeneracional del maltrato, lo que muestra un tejido social íntimamente afectado en su capacidad profunda para vincularse afectiva, cognitiva y motivadamente con objetivos personales y políticos que permitan la ampliación de los horizontes futuros del Estado que acoge estas realidades, modificándolas sin embargo con gran lentitud. Así mismo, en vista de que los problemas que inician en la infancia, afectan el resto del ciclo de vida de las personas, es necesario llamar la atención sobre la importancia de que el bienestar que se logre con la aplicación de políticas públicas dirigidas a la infancia, no desaparezca durante la adolescencia o la juventud y mucho menos cuando la población envejece. Ante estas circunstancias el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica enfatiza en que la seguridad de las niñas, niños y adolescentes, puede afianzarse a través | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 220 | de políticas públicas dirigidas a la infancia, no desaparezca durante la adolescencia o la juventud y mucho menos cuando la población envejece. Ante estas circunstancias el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica enfatiza en que la seguridad de las niñas, niños y adolescentes, puede afianzarse a través de la implementación de estrategias interinstitucionales específicas, orientadas a la prevención de factores sociales de riesgo, procurando entornos de paz y convivencia, que eviten que los niños, niñas y adolescente sean sometidos a situaciones de violencia o sean vinculados a actividades delictivas. En el marco de estas estrategias, las intervenciones en la familia y en las instituciones educativas son fundamentales para erradicar la naturalización de la violencia y promover relaciones de convivencia fomentadas en el respeto a los demás y el diálogo.
3.2.2 La juventud y los fenómenos delictivos
“(...) yo veo que las drogas se han tomado el Ecuador, antes era | [
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] |
PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 221 | en la familia y en las instituciones educativas son fundamentales para erradicar la naturalización de la violencia y promover relaciones de convivencia fomentadas en el respeto a los demás y el diálogo.
3.2.2 La juventud y los fenómenos delictivos
“(...) yo veo que las drogas se han tomado el Ecuador, antes era raro ver a un joven intoxicado con esa marihuana, con ese maduro con queso que escucho, ahora es algo normal, yo paso cerca de las siete de la noche por el Parque Lineal Ramos, y ahí saben estar un grupo de seis, siete jóvenes menores fumados y eso obvio a uno le da miedo eso ahora peor con mis hijos ir por ahí(...)” (Carrillo M., Santo Domingo de los Tsáchilas, 2018). 90 91
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica En el desarrollo de este Plan se ha reconocido a los centros | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 222 | uno le da miedo eso ahora peor con mis hijos ir por ahí(...)” (Carrillo M., Santo Domingo de los Tsáchilas, 2018). 90 91
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica En el desarrollo de este Plan se ha reconocido a los centros educativos, no solamente como lugares en el que se accede al derecho a educarse, sino como un espacio de convivencia profunda, en el que se verifican los principales cambios en el ciclo de la vida, atinentes a las transformaciones de la niñez a la adolescencia y juventud. Es por ello que la violencia que acontece en los centros educativos ha sido motivo de especial preocupación por parte del Ministerio de Educación, cartera de Estado que presentó una iniciativa para alcanzar espacios educativos libres de violencia, a través de la subsecretaría de Educación de la Zona 833. Sin embargo, el diálogo | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 223 | que la violencia que acontece en los centros educativos ha sido motivo de especial preocupación por parte del Ministerio de Educación, cartera de Estado que presentó una iniciativa para alcanzar espacios educativos libres de violencia, a través de la subsecretaría de Educación de la Zona 833. Sin embargo, el diálogo entre el desarrollo de la realidad y las respuestas de la gestión de lo público no siempre van de la mano. Producen tensiones, espacios y figuras que deben ser contextualizados a través del adecuado complemento de estudios cualitativos que permitan comprender la agencialidad de los niños, niñas y adolescentes como seres capaces de negociar significados y prácticas sociales. En este sentido, es de vital importancia comprender también las mediaciones que las personas adultas son capaces de proveer para que esta agencialidad se exprese, tomando en cuenta el equilibrio que debe existir para evitar la imposición unilateral de una sola voz. | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 224 | seres capaces de negociar significados y prácticas sociales. En este sentido, es de vital importancia comprender también las mediaciones que las personas adultas son capaces de proveer para que esta agencialidad se exprese, tomando en cuenta el equilibrio que debe existir para evitar la imposición unilateral de una sola voz. En otras palabras, escuchar sólo a los adultos o sólo a los jóvenes, deja abierta la puerta para reproducir el sesgo cultural que consiste en separarle de los espacios propios de los adultos, sesgando los niveles relacionales que de hecho existen y que ayudan a desemarcar los diversos grupos etarios, comprendiéndolos como parte de un conjunto cotidiano de interacciones. De ahí que, como expresa Laura Martínez Alamillo (2011), es importante plasmar las construcciones que elaboran los adultos que trabajan cotidianamente con niños/adolescentes.
33 La campaña ¨Más conciencia menos violencia¨ - en el marco del Plan Nacional de Convivencia Armónica y Cultura | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 225 | comprendiéndolos como parte de un conjunto cotidiano de interacciones. De ahí que, como expresa Laura Martínez Alamillo (2011), es importante plasmar las construcciones que elaboran los adultos que trabajan cotidianamente con niños/adolescentes.
33 La campaña ¨Más conciencia menos violencia¨ - en el marco del Plan Nacional de Convivencia Armónica y Cultura de Paz ¨Más unidos, más protegidos” – ha propuesto la conformación de un equipo antiviolencia integrado por la máxima autoridad del plantel, docentes, estudiantes, personal del Departamento de Consejería Estudiantil (DECE) y padres de familia o representantes, quienes tendrán la facultad para intervenir y denunciar cualquier tipo de agresión o violencia que se suscite en el entorno escolar (Ministerio de Educación, 2018); a ello se suma la intervención policial especializada en niños y antidrogas.
Es importante conocerlas porque son responsables de poner en juego categorías que afectan a la organización social de los niños/adolescentes; diseñan tratamientos para “normalizarles” y las políticas | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 226 | violencia que se suscite en el entorno escolar (Ministerio de Educación, 2018); a ello se suma la intervención policial especializada en niños y antidrogas.
Es importante conocerlas porque son responsables de poner en juego categorías que afectan a la organización social de los niños/adolescentes; diseñan tratamientos para “normalizarles” y las políticas públicas que regulan sus posibilidades laborales, tomando en cuenta que muchas veces se encuentran atrapados en un sistema de cuyas injusticias son conscientes
y ante el que ensayan distintas soluciones, aunque no esté en su mano modificar lo que realmente creen que falla en el sistema […] (Martínez, 2011, p. 416). Es por lo complejo y sensible del tema en torno a la multiplicidad de la violencia sobre seres profundamente estimados por todo modelo de organización social, que el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica se compromete a colaborar desde sus instancias de estudio y operatividad ya establecidas | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 227 | Es por lo complejo y sensible del tema en torno a la multiplicidad de la violencia sobre seres profundamente estimados por todo modelo de organización social, que el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica se compromete a colaborar desde sus instancias de estudio y operatividad ya establecidas junto a la Policía Nacional, así como desde todas las áreas que sean pertinentes, para el fortalecimiento y creación de acciones contextualizadas que permitan crear las sinergias necesarias para, actuando al tenor del Derecho y las leyes, ofrecer protección activa en todas las situaciones que sean necesarias, desde aquellas emergentes hasta las que se presentan como más estructurales. La acción estratégica sobre escenarios posibles, procurará la prevención de estos hechos, así como contribuirá a la modernización, afinamiento y adaptación de instrumentos como el Registro Único de Violencia (RUV) y los que fueren necesarios desarrollar para modificar realmente aquellas fisuras del | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 228 | hasta las que se presentan como más estructurales. La acción estratégica sobre escenarios posibles, procurará la prevención de estos hechos, así como contribuirá a la modernización, afinamiento y adaptación de instrumentos como el Registro Único de Violencia (RUV) y los que fueren necesarios desarrollar para modificar realmente aquellas fisuras del sistema, por las cuales todavía se canaliza las acciones de violencia y vulneración de los niños, niñas y adolescentes.
3.2.3 Los adultos mayores, entre la sabiduría y el abandono En Ecuador, de conformidad con la Constitución de la República, las personas que tienen 65 años o más son consideradas adultas mayores y tienen reconocidos sus derechos con el fin de asegurar una calidad de vida digna durante todo el ciclo de vida (Const., 2008, art. 36). Específicamente, en el ámbito de la seguridad ciudadana y la convivencia social pacífica, estos derechos apuntan a recibir atención especializada en los ámbitos públicos y | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 229 | y tienen reconocidos sus derechos con el fin de asegurar una calidad de vida digna durante todo el ciclo de vida (Const., 2008, art. 36). Específicamente, en el ámbito de la seguridad ciudadana y la convivencia social pacífica, estos derechos apuntan a recibir atención especializada en los ámbitos públicos y privados para la protección contra la violencia, maltrato y explotación de cualquier índole o 92 93
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
negligencias que provoquen cualquiera de las situaciones mencionadas (Agenda Nacional para la Igualdad Intergeneracional 2017-2021, ANII, p. 22). Esto conlleva a un compromiso de todas las instituciones del Estado, entre ellas el Ministerio del Interior, para generar políticas orientadas a la promoción de derechos de los adultos mayores y a garantizar mejores condiciones de vida para asegurarles un envejecimiento positivo, es decir, una vejez en la que el Estado garantice | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 230 | a un compromiso de todas las instituciones del Estado, entre ellas el Ministerio del Interior, para generar políticas orientadas a la promoción de derechos de los adultos mayores y a garantizar mejores condiciones de vida para asegurarles un envejecimiento positivo, es decir, una vejez en la que el Estado garantice su bienestar social. Así mismo, considerando que el proceso de envejecimiento difiere de acuerdo con la condición social, es necesario continuar desarrollando propuestas, alternativas y espacios que mejoren las condiciones de vida a través de planes, programas y proyectos en los que las personas adultas mayores sean agentes de un proceso de reconocimiento justo en el entorno familiar y social (ANII 2017-2021, pp. 155-156). Se trata de establecer pautas que contribuyan a la protección de derechos de las personas a lo largo de su ciclo de vida y que, además, les permita integrarse a la sociedad, dejando de lado aquellas | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 231 | proceso de reconocimiento justo en el entorno familiar y social (ANII 2017-2021, pp. 155-156). Se trata de establecer pautas que contribuyan a la protección de derechos de las personas a lo largo de su ciclo de vida y que, además, les permita integrarse a la sociedad, dejando de lado aquellas concepciones y patrones culturales que han restringido el reconocimiento de este sector de la población como sujetos de derechos. Ello implica no solo el compromiso del Estado, sino de toda la sociedad para modificar esas relaciones estructurales de desigualdad social y ofrecerles aquellas condiciones y oportunidades necesarias para asegurar su bienestar. Según el diagnóstico realizado en la Agenda Nacional para la Igualdad Intergeneracional, la población adulta mayor en el Ecuador al 2017 llegó a 1’212.461 personas, es decir el 7,04% del total de la población ecuatoriana. En lo referente a la composición urbano/rural de la población adulta mayor, el 63,31% | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 232 | bienestar. Según el diagnóstico realizado en la Agenda Nacional para la Igualdad Intergeneracional, la población adulta mayor en el Ecuador al 2017 llegó a 1’212.461 personas, es decir el 7,04% del total de la población ecuatoriana. En lo referente a la composición urbano/rural de la población adulta mayor, el 63,31% se encuentra en la zona urbana y el 36,69% en la rural. En lo que atañe a las condiciones de vida, el 17,5% de las personas adultas mayores es pobre. Este porcentaje está por debajo de la media nacional, que alcanza el 21,5%. Las mujeres adultas mayores tienden a ser más pobres que los hombres (ENEMDU, INEC, 2017 citado en ANII 2017-2021, p. 159). De acuerdo a la misma fuente, el 17% de las personas adultas mayores cuenta con empleo adecuado; un 13,57% de hombres y un 4,10% de mujeres. El 47,72% se dedica principalmente a actividades económicas relacionadas con | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 233 | más pobres que los hombres (ENEMDU, INEC, 2017 citado en ANII 2017-2021, p. 159). De acuerdo a la misma fuente, el 17% de las personas adultas mayores cuenta con empleo adecuado; un 13,57% de hombres y un 4,10% de mujeres. El 47,72% se dedica principalmente a actividades económicas relacionadas con la agricultura, ganadería, silvicultura y pesca; 38,72% de los hombres y 9% de las mujeres. Así mismo, el 58,44% de las personas adultas mayores no cuenta con seguro social; en este porcentaje, alrededor del 33% son mujeres. De aquellos que acceden a algún tipo de seguro, el 23,02% cuenta con el seguro general del IESS; 13,76% con seguro campesino; y apenas 3,05% está afiliado al seguro general voluntario. Estas cifras nos van mostrando una constante que hemos visto a lo largo de la construcción de los enfoques aquí presentados: la brecha entre el ideal y los alcances reales de las | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 234 | el seguro general del IESS; 13,76% con seguro campesino; y apenas 3,05% está afiliado al seguro general voluntario. Estas cifras nos van mostrando una constante que hemos visto a lo largo de la construcción de los enfoques aquí presentados: la brecha entre el ideal y los alcances reales de las políticas estatales pues, si bien es cierto se han realizado importantes avances en la concepción integral de las diversas generaciones, finalmente las cifras demuestran que los fenómenos atinentes al deterioro económico, abandono, deficiencia en atención de la salud y educación del adulto mayor, todavía subsisten. Según lo recogido por el estudio cualitativo de la ANII 2017-2021, entre las dificultades expresadas por las y los adultos mayores en el Ecuador, ellos y ellas identifican la falta oportuna de acceso a servicios de salud especializados y de calidad, así como la carencia de hábitos para una vida saludable y activa. El analfabetismo | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 235 | estudio cualitativo de la ANII 2017-2021, entre las dificultades expresadas por las y los adultos mayores en el Ecuador, ellos y ellas identifican la falta oportuna de acceso a servicios de salud especializados y de calidad, así como la carencia de hábitos para una vida saludable y activa. El analfabetismo limita el pleno desarrollo de las personas, pues representa una barrera para el ejercicio de otros derechos, y no se limita al no saber leer y escribir, sino también al desconocimiento tecnológico o analfabetismo digital. Otra problemática recurrente a la que se enfrentan las personas adultas mayores en Ecuador es la falta de una vivienda que puedan habitar en condiciones de seguridad y dignidad. La falta de acceso a vivienda en este grupo generacional implica que, “frente a la falta de ingresos, no se habite en un lugar digno, incluso [varios habitan] en infraestructuras que ponen en riesgo su vida” | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 236 | la falta de una vivienda que puedan habitar en condiciones de seguridad y dignidad. La falta de acceso a vivienda en este grupo generacional implica que, “frente a la falta de ingresos, no se habite en un lugar digno, incluso [varios habitan] en infraestructuras que ponen en riesgo su vida” (ANII 2017-2021, p. 171 y ss.). 94 95
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica En el contexto de una vida que avanza, la preeminencia de las generaciones que el entorno sociocultural en el Ecuador estima como “nuevas”, hace del abandono a los adultos mayores una forma de violencia. Varios testimonios tomados en la ANII 2017-2021 señalan que la soledad, la necesidad de aceptación y afecto y la falta de ingresos son los principales problemas de este grupo etario. Muchos perciben una constante situación de abandono y riesgos de mendicidad: “se trata | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 237 | los adultos mayores una forma de violencia. Varios testimonios tomados en la ANII 2017-2021 señalan que la soledad, la necesidad de aceptación y afecto y la falta de ingresos son los principales problemas de este grupo etario. Muchos perciben una constante situación de abandono y riesgos de mendicidad: “se trata de vender comida, productos, o subsistir de alguna manera, incluso llegando a la mendicidad” (ANII 2017-2021, p. 173). Frente a esta situación, la ANII 2017-2021, establece como líneas de acción: - Generar un sistema de información que permita contar con indicadores permanentes de las necesidades de cuidado de las personas adultas mayores. - Implementar modalidades alternativas a la institucionalización para el cuidado de las personas adultas mayores que promuevan la corresponsabilidad de la familia, atiendan a las necesidades específicas de autonomía de la población objetivo y generen condiciones para el autocuidado. - Diseñar e implementar un programa de formación permanente | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 238 | adultas mayores. - Implementar modalidades alternativas a la institucionalización para el cuidado de las personas adultas mayores que promuevan la corresponsabilidad de la familia, atiendan a las necesidades específicas de autonomía de la población objetivo y generen condiciones para el autocuidado. - Diseñar e implementar un programa de formación permanente y de resiliencia para cuidadoras y cuidadores especializados en la atención a personas adultas mayores. En este sentido, el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica 2019-2030, se encuentra en consonancia con el desarrollo de las políticas públicas propuestas por la ANII 2017-2021, estableciendo como parte de sus propios lineamientos las coordinaciones que sean pertinentes para el fortalecimiento de toda iniciativa dirigida a la protección y prevención de la violencia o vulneración de derechos hacia las personas adultas mayores.
Líneas sinérgicas del enfoque intergeneracional para el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica, como política pública Al | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 239 | propios lineamientos las coordinaciones que sean pertinentes para el fortalecimiento de toda iniciativa dirigida a la protección y prevención de la violencia o vulneración de derechos hacia las personas adultas mayores.
Líneas sinérgicas del enfoque intergeneracional para el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica, como política pública Al contemplar problemáticas que involucran dinámicas complejas en torno a la configuración de identidades, economías y posibilidades de desarrollo humano, el enfoque intergeneracional refuerza las ideas transversales vinculadas a la interseccionalidad, referidas ya en los enfoques de plurinacionalidad y género, covirtiéndose en la oportunidad de profundizar los alcances interinstitucionales, aportando con datos que fortalezcan las competencias específicas de cada institución, a la vez que se genera una red de instituciones que trabajan mancomunadamente para alcanzar los escenarios de seguridad y convivencia social pacífica propuestos por este Plan. Así mismo, la incorporación de este enfoque llama la atención sobre la necesidad de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 240 | datos que fortalezcan las competencias específicas de cada institución, a la vez que se genera una red de instituciones que trabajan mancomunadamente para alcanzar los escenarios de seguridad y convivencia social pacífica propuestos por este Plan. Así mismo, la incorporación de este enfoque llama la atención sobre la necesidad de apoyar la creación de instrumentos inéditos hasta el momento en materia de seguridad ciudadana, dado que los grupos comprendidos en este enfoque y sus realidades visibilizan a profundidad la existencia de violencias estructurales – sociales, culturales, económicas –, falta de infraestructura – falta de lugares públicos que ofrezcan accesos adecuados a servicios – así como una brecha histórica importante que señala la necesidad y profundización de la aplicación de medidas de acción afirmativa a todo nivel. Por todo lo visto, el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica 2019-2030 mantiene alineación con todos los instrumentos normativos e institucionales, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 241 | a servicios – así como una brecha histórica importante que señala la necesidad y profundización de la aplicación de medidas de acción afirmativa a todo nivel. Por todo lo visto, el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica 2019-2030 mantiene alineación con todos los instrumentos normativos e institucionales, tanto nacionales como internacionales, que coadyuven a mejorar las condiciones de seguridad y acceso a sus derechos de las personas, especialmente los niños, niñas, adolescentes y adultos mayores, como lo determina la Constitución de la República y las competencias propias de los organismos asociados.
3.3 96 97
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
4 Enfoque de discapacidades
4.1 Antecedentes normativos e institucionales Si bien los esfuerzos institucionales para garantizar a las personas con discapacidad el reconocimiento y ejercicio pleno de sus derechos datan de muchos años atrás, para efectos de este Plan haremos un | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 242 | Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
4 Enfoque de discapacidades
4.1 Antecedentes normativos e institucionales Si bien los esfuerzos institucionales para garantizar a las personas con discapacidad el reconocimiento y ejercicio pleno de sus derechos datan de muchos años atrás, para efectos de este Plan haremos un recorrido rápido por la normativa más reciente que busca promover formas adecuadas de integrarlos a los diferentes ámbitos de la sociedad y garantizarles el goce efectivo de sus derechos. En 1992 se publica la Ley 180 a través de la cual se establece un marco normativo e institucional para la atención de las personas con discapacidad desde un enfoque de derechos. Así mismo, se crea el Consejo Nacional de Discapacidades (CONADIS) como entidad rectora del tema en el país, con autonomía para dictar políticas, coordinar acciones públicas y privadas, e impulsar investigaciones sobre discapacidad. De acuerdo a la Agenda Nacional | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 243 | atención de las personas con discapacidad desde un enfoque de derechos. Así mismo, se crea el Consejo Nacional de Discapacidades (CONADIS) como entidad rectora del tema en el país, con autonomía para dictar políticas, coordinar acciones públicas y privadas, e impulsar investigaciones sobre discapacidad. De acuerdo a la Agenda Nacional para la Igualdad en Discapacidades 2013-2017, la creación del CONADIS favoreció el desarrollo de acciones concretas de cobertura nacional, fundamentalmente en cuanto a la expedición de políticas generales y sectoriales, normatividad sobre beneficios especiales, definición de competencias ministeriales; promoción y fortalecimiento de las organizaciones de personas con discapacidad a través de
cinco federaciones nacionales34: Sin duda, estos cambios normativos e institucionales condujeron a una evolución de los enfoques de los modelos de atención a personas con discapacidad, pasando de una mirada de la beneficencia a una visión de inclusión desde el enfoque de derechos humanos, donde el Estado, la sociedad y | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 244 | de
cinco federaciones nacionales34: Sin duda, estos cambios normativos e institucionales condujeron a una evolución de los enfoques de los modelos de atención a personas con discapacidad, pasando de una mirada de la beneficencia a una visión de inclusión desde el enfoque de derechos humanos, donde el Estado, la sociedad y la familia adquieren la obligación de adoptar los mecanismos y medidas necesarias para atender de manera integral las
34 Federación Nacional de Ecuatorianos con Discapacidad Física (FENEDIF), Federación Nacional de Ciegos del Ecuador (FENCE), Federación Nacional de Sordos del Ecuador(FENASEC), Federación Ecuatoriana Pro Atención a la Persona con Discapacidad Intelectual, Parálisis Cerebral, Autismo y Síndrome de Down (FEPAPDEM), y Federación Nacional de ONG para la Atención de las Discapacidades (FENODIS). necesidades de este grupo de la población. Así entonces, el CONADIS orienta su accionar en tres ejes temáticos: prevención, atención e integración, con el propósito de prevenir las discapacidades y elevar | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 245 | Cerebral, Autismo y Síndrome de Down (FEPAPDEM), y Federación Nacional de ONG para la Atención de las Discapacidades (FENODIS). necesidades de este grupo de la población. Así entonces, el CONADIS orienta su accionar en tres ejes temáticos: prevención, atención e integración, con el propósito de prevenir las discapacidades y elevar la calidad de vida de las personas con discapacidad, en base a la ejecución del Plan Nacional de Discapacidades (2005). Más adelante, la Constitución de la República de 2008 ratifica el compromiso estatal con las personas con discapacidad y les reconoce derechos específicos. En el ámbito de la seguridad ciudadana y convivencia social pacífica se puede destacar el artículo 48, particularmente sus incisos:
1. La inclusión social, mediante planes y programas estatales y privados coordinados, que fomenten su participación política, social, cultural, educativa y económica.
7. La garantía del pleno ejercicio de los derechos de las personas con discapacidad. La ley sancionará | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 246 | y convivencia social pacífica se puede destacar el artículo 48, particularmente sus incisos:
1. La inclusión social, mediante planes y programas estatales y privados coordinados, que fomenten su participación política, social, cultural, educativa y económica.
7. La garantía del pleno ejercicio de los derechos de las personas con discapacidad. La ley sancionará el abandono de estas personas y los actos que incurran en cualquier forma de abuso, trato inhumano o degradante y discriminación por razón de la discapacidad. Y, el artículo 66, particularmente el inciso b) “una vida libre de violencia en el ámbito público y privado. El Estado adoptará las medidas necesarias para prevenir, eliminar y
sancionar toda forma de violencia, en especial la ejercida contra las mujeres, niñas, niños y adolescentes, personas adultas mayores, personas con discapacidad y contra toda persona en situación de desventaja o vulnerabilidad; idénticas medidas se tomarán contra la violencia, la esclavitud y la explotación sexual” (Const., | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 247 | necesarias para prevenir, eliminar y
sancionar toda forma de violencia, en especial la ejercida contra las mujeres, niñas, niños y adolescentes, personas adultas mayores, personas con discapacidad y contra toda persona en situación de desventaja o vulnerabilidad; idénticas medidas se tomarán contra la violencia, la esclavitud y la explotación sexual” (Const., 2008, art. 66, literal b). Tabla 5. Instrumentos normativos y Programas referentes a las personas con discapacidad/es 2008-2017.
Año
Año
Instrumento
Instrumento
Descripción
Descripción
2008
2009
2010
2012
Constitución de la República del Ecuador
Bono de Desarrollo Humano / Pensión por Discapacidad
Bono Joaquín Gallegos Lara
Ley Orgánica de Discapacidades
un instrumento que recoge artículos garantistas de los derechos humanos, centrando una especial protección a los grupos de atención prioritaria, en el cual se ubica la persona con discapacidad como sujeto de deberes y derechos en igualdad de condiciones. Las políticas públicas generadas desde las Carteras de Estado encargadas del área social se han alineado a lo dispuesto en la Constitución de la República.
Acuerdo Ministerial N° | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 248 | grupos de atención prioritaria, en el cual se ubica la persona con discapacidad como sujeto de deberes y derechos en igualdad de condiciones. Las políticas públicas generadas desde las Carteras de Estado encargadas del área social se han alineado a lo dispuesto en la Constitución de la República.
Acuerdo Ministerial N° 00037, de 24 de julio de 2009, a través del cual establece como población de atención de la pensión para personas con discapacidad a todas aquellas personas con grado de discapacidad mayor o igual al 40% establecido por el CONADIS.
Acuerdo Ministerial N° 00121, de 14 de octubre de 2009, autoriza mantener o incorporar en la base de habilitados de los programas Bono de Desarrollo Humano y Pensiones, a los usuarios-as que sean representantes del núcleo familiar, donde existe uno o varios menores de edad con discapacidad, quienes se encuentren habilitados o que se habiliten en el Subprograma Pensión para Personas | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 249 | mantener o incorporar en la base de habilitados de los programas Bono de Desarrollo Humano y Pensiones, a los usuarios-as que sean representantes del núcleo familiar, donde existe uno o varios menores de edad con discapacidad, quienes se encuentren habilitados o que se habiliten en el Subprograma Pensión para Personas con Discapacidad.
Es una transferencia monetaria condicionada, de $240.00usd, que entrega a personas con discapacidad muy grave (severa) con altos niveles de dependencia, cuyo objetivo es mejorar la calidad de vida de las personas beneficiarias y sus familias. (Decreto Ejecutivo N° 422, de 15 de julio de 2010, publicado en Registro Oficial Suplemento No.252 el 06 de agosto de 2010).
Normativa que tiene como objeto: “(…) asegurar la prevención, detección oportuna, habilitación y rehabilitación de la discapacidad, y garantizar la plena vigencia, difusión y ejercicio de los derechos de las personas con discapacidad, establecidos en la Constitución de la República, tratados e | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 250 | Oficial Suplemento No.252 el 06 de agosto de 2010).
Normativa que tiene como objeto: “(…) asegurar la prevención, detección oportuna, habilitación y rehabilitación de la discapacidad, y garantizar la plena vigencia, difusión y ejercicio de los derechos de las personas con discapacidad, establecidos en la Constitución de la República, tratados e instrumentos internacionales; así como, aquellos que se deriven en leyes conexas, con enfoque de género,
98 99
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Finalmente, dentro de este breve recorrido histórico no podemos dejar de mencionar la publicación de la Ley Orgánica de Discapacidad a través de la cual se asegura la prevención, detección oportuna, habilitación y rehabilitación de la discapacidad, y garantiza la plena vigencia, difusión y ejercicio de los derechos de las personas con discapacidad. Por otra parte, se da la creación de la Secretaría Técnica de Discapacidades en 2013, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 251 | de Discapacidad a través de la cual se asegura la prevención, detección oportuna, habilitación y rehabilitación de la discapacidad, y garantiza la plena vigencia, difusión y ejercicio de los derechos de las personas con discapacidad. Por otra parte, se da la creación de la Secretaría Técnica de Discapacidades en 2013, adscrita a la Vicepresidencia de la República, con la finalidad de seguir adelante con el desarrollo de programas y proyectos en beneficio de las personas con discapacidad. A continuación se describen algunos instrumentos normativos, programas y proyectos orientados este fin: Año AñoInstrumento InstrumentoDescripción Descripción
2012
2013
2013
Incorporación a nuevos usuarios del Bono Joaquín Gallegos Lara Proceso de transferencia del Bono Joaquín Gallegos Lara de la Creación Secretaría Técnica de Discapacidades (SETEDIS) al Ministerio de Inclusión Económica y Social (MIES)
Norma Técnica Prestación de Servicios de atención a las personas con Discapacidad y sus Familias
Primera Agenda Nacional para la Igualdad de Discapacidades 2013 - 2017
Plan Nacional | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 252 | Lara Proceso de transferencia del Bono Joaquín Gallegos Lara de la Creación Secretaría Técnica de Discapacidades (SETEDIS) al Ministerio de Inclusión Económica y Social (MIES)
Norma Técnica Prestación de Servicios de atención a las personas con Discapacidad y sus Familias
Primera Agenda Nacional para la Igualdad de Discapacidades 2013 - 2017
Plan Nacional de Desarrollo “Buen Vivir” 2013 - 2017
Creación de la Subsecretaría de Discapacidades
Se incluyen como beneficiarios del Bono Joaquín Gallegos Lara a personas con enfermedades catastróficas, raras y huérfanas, así como también a menores de 14 años que viven con VIH-SIDA. Ambos deben encontrarse en condición socio económic crítica. (Decretos Ejecutivos N° 1138, de 19 de abril de 2012 y N° 1284, de 30 de agosto de 2012, respectivamente).
Decreto Ejecutivo N° 6, de 30 de mayo de 2013. Artículo 2, numeral 1, otorga a la Secretaría Técnica de Discapacidades la atribución de “Coordinar e implementar el proceso de transferencia de las | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 253 | N° 1138, de 19 de abril de 2012 y N° 1284, de 30 de agosto de 2012, respectivamente).
Decreto Ejecutivo N° 6, de 30 de mayo de 2013. Artículo 2, numeral 1, otorga a la Secretaría Técnica de Discapacidades la atribución de “Coordinar e implementar el proceso de transferencia de las Misiones “Solidaria Manuela Espejo” y “Joaquín Gallegos Lara” a los ministerios rectores de la salud y de la inclusión económica y social, respectivamente (…)”.
Se firma Convenio Marco Nro. 003, para la transferencia y co-ejecución del Proyecto Misión Joaquín Gallegos Lara entre la Secretaría Técnica de Discapacidades y el Ministerio de Inclusión Económica y Social, de 24 de julio de 2013, en el cual se establece como objeto la transferencia de recursos financieros y talento humano.
Mediante Acuerdo Ministerial No. 163 de 28 de enero de 2013, el Ministerio de Inclusión Económica y Social expidió la “Norma Técnica Prestación de Servicios de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 254 | Inclusión Económica y Social, de 24 de julio de 2013, en el cual se establece como objeto la transferencia de recursos financieros y talento humano.
Mediante Acuerdo Ministerial No. 163 de 28 de enero de 2013, el Ministerio de Inclusión Económica y Social expidió la “Norma Técnica Prestación de Servicios de atención a las personas con Discapacidad y sus Familias”.
Esta agenda incorpora doce ejes de la política pública, sus políticas y lineamientos, las cuales orientan el accionar de las instituciones ejecutoras (incluye al MIES) en la formulación e implementación de las políticas públicas de discapacidades entre el 2013 y 2017
Mediante Acuerdo Ministerial N°000154 del 8 de enero de 2013, se crea la Subsecretaría de Discapacidades, conformada por las Direcciones de Protección al Cuidado de las Personas con Discapacidad y de Provisión de Servicios para las Personas con Discapacidad.
Es la herramienta en la que se definen las políticas públicas, así como también | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 255 | Ministerial N°000154 del 8 de enero de 2013, se crea la Subsecretaría de Discapacidades, conformada por las Direcciones de Protección al Cuidado de las Personas con Discapacidad y de Provisión de Servicios para las Personas con Discapacidad.
Es la herramienta en la que se definen las políticas públicas, así como también la ejecución e inversión de los recursos públicos que requieren los programas y proyectos Estatales.
El MIES direcciona su accionar en consideración a los siguientes objetivos del Plan Nacional de Desarrollo:
Objetivo 2: Auspiciar la igualdad, la cohesión, la inclusión y la equidad social y territorial, en la diversidad.
Objetivo 3: Mejorar la Calidad de Vida de la población.
Objetivo 5: Construir espacios de encuentro común y fortalecer la identidad nacional, las identidades diversas, la plurinacionalidad.
100 101
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Año AñoInstrumento InstrumentoDescripción Descripción
2013
20152014
2015
Proceso de transferencia del Bono Joaquín Gallegos Lara de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 256 | Calidad de Vida de la población.
Objetivo 5: Construir espacios de encuentro común y fortalecer la identidad nacional, las identidades diversas, la plurinacionalidad.
100 101
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Año AñoInstrumento InstrumentoDescripción Descripción
2013
20152014
2015
Proceso de transferencia del Bono Joaquín Gallegos Lara de la Creación Secretaría Técnica de Discapacidades (SETEDIS) al Ministerio de Inclusión Económica y Social (MIES)
Gestión de Sustituto de Persona con Discapacidad
Estatuto Orgánico de Gestión Organizacional por Procesos
Estatuto Orgánico de Gestión Organizacional por Procesos
Convenio Modificatorio Nro. 010-MIES-SG-2014, de 16 de junio de 2014, la SETEDIS y el MIES “acuerdan modificar el objeto y las obligaciones establecidas en el Convenio Marco para la Transferencia y Co-ejecución del Proyecto Misión Joaquín Gallegos Lara Nro. 003”.
01 de agosto de 2014, el Bono Joaquín Gallegos Lara se incorpora como un servicio en el MIES, su gestión se lo realiza en la Subsecretaría de Discapacidades.
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 257 | objeto y las obligaciones establecidas en el Convenio Marco para la Transferencia y Co-ejecución del Proyecto Misión Joaquín Gallegos Lara Nro. 003”.
01 de agosto de 2014, el Bono Joaquín Gallegos Lara se incorpora como un servicio en el MIES, su gestión se lo realiza en la Subsecretaría de Discapacidades.
Misión Subsecretaría de Discapacidades: Planificar, coordinar, gestionar, controlar y evaluar las políticas, planes, programas, estrategias, proyectos y servicios para la inclusión social de las personas con discapacidad a través de la prestación de servicios, seguimiento de la corresponsabilidad del Bono Joaquín Gallegos Lara, y la promoción de relaciones positivas del entorno familiar de las personas con discapacidad, con énfasis en aquella población que se encuentra en situación de pobreza y vulnerabilidad, y grupos de atención prioritaria.
Misión Dirección de Protección al Cuidado de las Personas con Discapacidad: Planificar, coordinar, gestionar, monitorear y evaluar las políticas de discapacidad a través de estrategias para la | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 258 | de las personas con discapacidad, con énfasis en aquella población que se encuentra en situación de pobreza y vulnerabilidad, y grupos de atención prioritaria.
Misión Dirección de Protección al Cuidado de las Personas con Discapacidad: Planificar, coordinar, gestionar, monitorear y evaluar las políticas de discapacidad a través de estrategias para la protección e inclusión social de las personas con discapacidad y sus cuidadores, que permita su propio desarrollo, participación, organización y corresponsabilidad a fin de garantizar sus derechos.
Misión Dirección de Prestación de Servicios para las Personas con Discapacidad: Planificar, coordinar, gestionar, controlar, y evaluar las políticas y estrategias de desarrollo integral para personas con discapacidad, a través de la prestación de servicios con énfasis en aquella población que se encuentra en situación de pobreza y vulnerabilidad, contribuyendo a su inclusión social y de las familias.
Acuerdo Ministerial No. 000043, de 28 de octubre de 2014, y su reforma mediante Acuerdo Ministerial N°000131 | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 259 | para personas con discapacidad, a través de la prestación de servicios con énfasis en aquella población que se encuentra en situación de pobreza y vulnerabilidad, contribuyendo a su inclusión social y de las familias.
Acuerdo Ministerial No. 000043, de 28 de octubre de 2014, y su reforma mediante Acuerdo Ministerial N°000131 del 30 de diciembre de 2015, el MIES acuerda expedir el “Instructivo para la Calificación y Certificación de Sustituto de Persona con Discapacidad”. El objetivo de esta tarea es emitir el certificado de Sustituto y Sustituto por Solidaridad Humana de personas con discapacidad, de acuerdo a lo dispuesto en el artículo 48 de la Ley Orgánica de Discapacidades.
Documento publicado en registro oficial suplemento 329, de 19 de junio de 2015, establece:
Misión MIES: Definir y ejecutar políticas, estrategias, planes, programas, proyectos y servicios de calidad y con calidez, para la inclusión económica y social, con énfasis en los grupos de atención | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 260 | artículo 48 de la Ley Orgánica de Discapacidades.
Documento publicado en registro oficial suplemento 329, de 19 de junio de 2015, establece:
Misión MIES: Definir y ejecutar políticas, estrategias, planes, programas, proyectos y servicios de calidad y con calidez, para la inclusión económica y social, con énfasis en los grupos de atención prioritaria y la población que se encuentra en situación de pobreza y vulnerabilidad, promoviendo el desarrollo y cuidado durante el ciclo de vida, la movilidad social ascendente y fortaleciendo a la economía popular y solidaria.
102 103
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Año Instrumento Descripción
2017
Plan Nacional de Desarrollo “Toda una Vida” 2017 - 2021
Institucionalización del Bono Joaquín Gallegos Lara en el MIES.
Elaborado por: Subsecretaría de Evaluación y Estudios, Ministerio del Interior.
Varias fuentes institucionales y normativas.
El Plan Nacional de Desarrollo 2017-2021 es la herramienta en la que asentarán las políticas, programas y | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 261 | Social Pacífica Año Instrumento Descripción
2017
Plan Nacional de Desarrollo “Toda una Vida” 2017 - 2021
Institucionalización del Bono Joaquín Gallegos Lara en el MIES.
Elaborado por: Subsecretaría de Evaluación y Estudios, Ministerio del Interior.
Varias fuentes institucionales y normativas.
El Plan Nacional de Desarrollo 2017-2021 es la herramienta en la que asentarán las políticas, programas y proyectos públicos; así como también la coordinación de las competencias entre los diferentes niveles de gobierno.
El MIES alinea sus programas y proyectos al objetivo 1 del Plan Nacional de Desarrollo:
Objetivo 1: Garantizar una vida digna con iguales oportunidades para todas las personas.
Acuerdo Ministerial N°0043, de 23 de mayo de 2017, expide el “Instructivo Técnico Normativo para la Gestión del Bono Joaquín Gallegos Lara”.
104 105
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
4.2 Ecuador y el modelo social de la discapacidad Las personas que viven con discapacidad constituyen aquella porción de la población | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 262 | expide el “Instructivo Técnico Normativo para la Gestión del Bono Joaquín Gallegos Lara”.
104 105
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
4.2 Ecuador y el modelo social de la discapacidad Las personas que viven con discapacidad constituyen aquella porción de la población que desafía al máximo la capacidad de las organizaciones sociales y los Estados, enfocados desde sus primordios en la construcción de una idea de “normalidad” homogenizante, en la que únicamente se puede calzar a fuerza de la uniformización y de la construcción de dinámicas colonialistas preparadas para justificar una tajante, a la vez que ficticia, división entre “nosotros, los normales” y “los otros”. Vinculadas a hechos no esperados y a inevitables sufrimientos, las discapacidades en los seres humanos suelen provocar temor y asombro antes que conciencia en sí mismas. Inclusive la solidaridad puede transformarse en un arma de doble filo | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 263 | a la vez que ficticia, división entre “nosotros, los normales” y “los otros”. Vinculadas a hechos no esperados y a inevitables sufrimientos, las discapacidades en los seres humanos suelen provocar temor y asombro antes que conciencia en sí mismas. Inclusive la solidaridad puede transformarse en un arma de doble filo si su contenido parte de una gramática eminentemente moralizante que excluya los contextos en que una discapacidad es producida35. Como lo observa la antropóloga boliviana Violeta Montellano, en su estudio “La mirada encarnada” (2014):
(…) los términos empleados para desginar al colectivo “no videntes”, “invidentes” y “ciegos”, expresaban la ignorancia en la sociedad sobre la graduación de visualidad experimentada internamente y, a la vez remarcaban las fronteras sobre normalidad y anormalidad. Por otro lado, estas terminologías implicaban la diferenciación entre investigadora, supuestamente “vidente” y sujetos de investigación, supuestamente “ciegos”. [La propuesta inicial] si bien afirmaba una comprensión sobre la visualidad traspasando | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 264 | la sociedad sobre la graduación de visualidad experimentada internamente y, a la vez remarcaban las fronteras sobre normalidad y anormalidad. Por otro lado, estas terminologías implicaban la diferenciación entre investigadora, supuestamente “vidente” y sujetos de investigación, supuestamente “ciegos”. [La propuesta inicial] si bien afirmaba una comprensión sobre la visualidad traspasando el enfoque biomédico, considerándola como una construcción histórica, cultural, social y política, seguía basándose en el binario hegemónico que establecía fronteras entre videntes y no videntes” (Montellano, 2014, p. 65). Lo propio podríamos expresar de los múltiples fenómenos de discapacidad presos en la imposibilidad de poder ser políticamente definidos sin caer en dinámicas de indiferencia. Es por ello que todo esfuerzo proveniente desde los Estados para superar estas barreras, ofreciendo lineamientos de reflexión y políticas públicas más coherentes con la comprensión integral de las vidas y derechos de las personas con discapacidades, es no solamente bienvenido, sino necesario para el | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 265 | caer en dinámicas de indiferencia. Es por ello que todo esfuerzo proveniente desde los Estados para superar estas barreras, ofreciendo lineamientos de reflexión y políticas públicas más coherentes con la comprensión integral de las vidas y derechos de las personas con discapacidades, es no solamente bienvenido, sino necesario para el aterrizaje de las relaciones que mantiene este grupo de ciudadanos/as con su vida cotidiana, su espacio, sus motivaciones, sus derechos y sus obligaciones como miembros activos de la comunidad. En este sentido, pese al acierto de diversas críticas 36, el modelo social para la comprensión integral de la discapacidad parece ser hasta el momento el más apto para viabilizar propuestas a través de la gestión pública.
35 La visión historizada de la antigüedad explicaba la procedencia de la discapacidad a través de la religión, que la entendía como el resultado de un castigo divino o la anunciación catastrófica de un evento | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 266 | ser hasta el momento el más apto para viabilizar propuestas a través de la gestión pública.
35 La visión historizada de la antigüedad explicaba la procedencia de la discapacidad a través de la religión, que la entendía como el resultado de un castigo divino o la anunciación catastrófica de un evento próximo. Este modelo consideraba improductivas a las personas con discapacidad siendo socialmente presentadas como cargas económicas y sociales. A esta concepción se conoce como modelo de prescindencia y se divide en dos submodelos: el eugenésico, que incluía prácticas como el infanticidio; y el de marginación, el cual, dada la expansión del catolicismo en el Medioevo y sus principios mandatorios de “no matarás”, opta por mecanismos “humanitarios” de exclusión social, ya sea por subestimación o por temor. Sin embargo, el tratamiento que daba la sociedad a una discapacidad congénita y una discapacidad adquirida era distinto pues la causa de las discapacidades | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 267 | del catolicismo en el Medioevo y sus principios mandatorios de “no matarás”, opta por mecanismos “humanitarios” de exclusión social, ya sea por subestimación o por temor. Sin embargo, el tratamiento que daba la sociedad a una discapacidad congénita y una discapacidad adquirida era distinto pues la causa de las discapacidades adquiridas no se consideraba religiosa. (Toboso y Ripollés, 2008; Valverde, 2012).
36 Las pensadoras feministas Hughes y Paterson (2008) plantearon una crítica sobre el modelo social de la discapacidad, que al pretender superar el biologicismo individualista del modelo médico, olvidó el “problema” del cuerpo como elemento fundamental para la comprensión de las realidades de las personas con discapacidad, quienes en su cotidiano, desarrollan formas complementarias de interacción con su entorno (Montellano, 2014, p: 70). 106 107
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Según Victoria Maldonado (2013), el modelo social concibe la discapacidad | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 268 | las realidades de las personas con discapacidad, quienes en su cotidiano, desarrollan formas complementarias de interacción con su entorno (Montellano, 2014, p: 70). 106 107
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Según Victoria Maldonado (2013), el modelo social concibe la discapacidad de manera holística, reconociendo la existencia de deficiencias en los seres humanos, pero no considerándolas discapacidades en sí mismas, bajo la comprensión de que las dificultades de la discapacidad se derivan de las barreras económicas, medioambientales y culturales del contexto social, propugnándose entonces que antes que sujetos esencializados como discapacitados, lo que existe es una sociedad que requiere reevaluar su mirada discriminatoria – desde un enfoque interseccional que reconozca que discapacidad sumada a la pobreza y a variables como etnia, edad, género y otras relacionadas, generan mayor exclusión-, reconociendo las diversidades y las relaciones de las personas con discapacidad con | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 269 | lo que existe es una sociedad que requiere reevaluar su mirada discriminatoria – desde un enfoque interseccional que reconozca que discapacidad sumada a la pobreza y a variables como etnia, edad, género y otras relacionadas, generan mayor exclusión-, reconociendo las diversidades y las relaciones de las personas con discapacidad con los ámbitos económico, social y cultural, basados todavía en prácticas normalocentristas. El modelo propone tres dimensiones a ser interiorizadas por quienes forman parte de la sociedad, para intentar alcanzar una transformación real encaminada al reconocimiento y valoración de la diversidad, y en consecuencia, el pleno ejercicio de los derechos de las personas con discapacidad. Estos principios serían:
• Toda vida humana tiene el mismo valor de dignidad;
• Todas las personas tienen derecho a tomar sus propias decisiones; y
• Todo ser humano tiene derecho a participar en las distintas esferas de la sociedad: económica, cultural, política y social. Estos tres elementos buscan | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 270 | las personas con discapacidad. Estos principios serían:
• Toda vida humana tiene el mismo valor de dignidad;
• Todas las personas tienen derecho a tomar sus propias decisiones; y
• Todo ser humano tiene derecho a participar en las distintas esferas de la sociedad: económica, cultural, política y social. Estos tres elementos buscan conjugarse en torno a la calidad de vida y autonomía, comprendidas como la capacidad de decidir y elegir de acuerdo con los intereses y deseos individuales; y, por otro, como la presencia de medios que permitan la eliminación de las barreras de acceso cuya materialización está ligada a cambios en las estructuras sociales y económicas. Partiendo del principio de que la vida de una persona con discapacidad tiene el mismo sentido que el de las personas sin discapacidad, el modelo social propone la creación de políticas que permitan el desarrollo de habilidades y capacidades hasta alcanzar su máximo potencial, así | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 271 | las estructuras sociales y económicas. Partiendo del principio de que la vida de una persona con discapacidad tiene el mismo sentido que el de las personas sin discapacidad, el modelo social propone la creación de políticas que permitan el desarrollo de habilidades y capacidades hasta alcanzar su máximo potencial, así como promueve la transformación de la infraestructura para crear espacios públicos amigables para las personas con discapacidad. Siguiendo estos lineamientos, se espera que la atención integral de las personas con discapacidad tome en cuenta que sus necesidades de cuidado no son homogéneas; por el contrario, están determinadas por factores como el envejecimiento, las afecciones de salud, los cambios en la diversidad funcional, la estructura familiar, la presencia o no de redes de apoyo, entre otros. Ello requiere de una respuesta específica en cada caso a fin de que las estrategias de intervención respondan a las necesidades y derechos de las | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 272 | el envejecimiento, las afecciones de salud, los cambios en la diversidad funcional, la estructura familiar, la presencia o no de redes de apoyo, entre otros. Ello requiere de una respuesta específica en cada caso a fin de que las estrategias de intervención respondan a las necesidades y derechos de las personas, para lo cual es menester contar con técnicos que simplifiquen el acceso a bienes y servicios tanto para las personas con discapacidad como para su núcleo familiar o de cuidadores/as (Bemgoetxea, 2012).
4.3 Principales vulnerabilidades asociadas a la discapacidad En el caso de Ecuador, el análisis demográfico indica que existe una mayor incidencia de pobreza en los hogares que albergan alguna persona con discapacidad. Así mismo, según el Consejo Nacional para la Igualdad de Discapacidades, alrededor del 50% de las personas con discapacidad se encuentra en los dos primeros quintiles de pobreza. Cabe señalar que la afectación por condición de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 273 | una mayor incidencia de pobreza en los hogares que albergan alguna persona con discapacidad. Así mismo, según el Consejo Nacional para la Igualdad de Discapacidades, alrededor del 50% de las personas con discapacidad se encuentra en los dos primeros quintiles de pobreza. Cabe señalar que la afectación por condición de pobreza es mayor en las provincias de Bolívar, Chimborazo, Carchi, Morona Santiago y Loja. Además, del total de personas con discapacidad, el 79% no tiene acceso a seguridad social, ni a la del Instituto Ecuatoriano de Seguridad Social (IESS) ni a la de otras instituciones públicas o privadas (CONADIS, 2013). En lo relativo a las causas de la discapacidad, se observa que “la discapacidad intelectual estaría asociada a problemas durante el período pre y perinatal (74 %), mientras las no intelectuales estarían asociadas a morbilidad diversa (50%) y accidentes (27%)” (Banco Internacional de Reconstrucción 108 109
Plan Nacional de Seguridad Ciudadana y | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 274 | En lo relativo a las causas de la discapacidad, se observa que “la discapacidad intelectual estaría asociada a problemas durante el período pre y perinatal (74 %), mientras las no intelectuales estarían asociadas a morbilidad diversa (50%) y accidentes (27%)” (Banco Internacional de Reconstrucción 108 109
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
y Fomento/Banco Mundial, 2013 citado por STPTV 2018, p. 27). Se manifiesta también que “las principales causas de la discapacidad son las enfermedades adquiridas (46,87%), las congénitas / genéticas (31,40%), y los accidentes de tránsito, domésticos, de trabajo o deportivos (11,96%)” (Conadis, 2018a citado por STPTV 2018, p. 27). Así mismo, al leer las cifras por tipo de discapacidad las mismas revelan “una proporción significativamente mayor de personas con discapacidad física (46,63%), seguida por las discapacidades intelectual (22,46%), auditiva (14,14%), visual (11,88%) y psicosocial (4,88%). En cuanto a la edad, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 275 | (11,96%)” (Conadis, 2018a citado por STPTV 2018, p. 27). Así mismo, al leer las cifras por tipo de discapacidad las mismas revelan “una proporción significativamente mayor de personas con discapacidad física (46,63%), seguida por las discapacidades intelectual (22,46%), auditiva (14,14%), visual (11,88%) y psicosocial (4,88%). En cuanto a la edad, se observa que 7 de cada 10 personas con discapacidad tienen 30 años o más, y 5 de cada 10 (48,6%) tienen entre 30 y 65 años. Una desagregación por género muestra que existe una mayor concentración en el género masculino (56,19%) que el femenino (43,81%)” (Conadis, 2018b citado por STPTV 2018, p. 28). Otras condiciones de vulnerabilidad a las que también están expuestas las personas con discapacidad, principalmente las mujeres, niñas, niños y adolescentes, es la violencia sexual. A la invisibilidad de las problemáticas de violencia sexual se suman la de las personas con discapacidad que son víctima de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 276 | STPTV 2018, p. 28). Otras condiciones de vulnerabilidad a las que también están expuestas las personas con discapacidad, principalmente las mujeres, niñas, niños y adolescentes, es la violencia sexual. A la invisibilidad de las problemáticas de violencia sexual se suman la de las personas con discapacidad que son víctima de este tipo de violencia y son invisibilizadas por la institucionalidad. El desconocimiento de la problemática exige con premura un acercamiento, estudio y ocupación de la misma, principalmente de las instituciones responsables de la seguridad ciudadana, tanto para generar información que permita evidenciar la problemática, como para plantear alternativas de acción orientadas a garantizar una vida libre de violencia a las personas con discapacidad. Las cifras muestran la necesidad de trabajar a favor del giro institucional para la generación de políticas públicas que valoren la integralidad de las realidades de las personas con discapacidad, camino que el Ecuador ha venido recorriendo | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 277 | orientadas a garantizar una vida libre de violencia a las personas con discapacidad. Las cifras muestran la necesidad de trabajar a favor del giro institucional para la generación de políticas públicas que valoren la integralidad de las realidades de las personas con discapacidad, camino que el Ecuador ha venido recorriendo desde décadas anteriores, verificándose desde el año 2008 y 2009 avances normativos y de gestión pública encaminados a profundidad en este sentido. Frente a esta realidad, el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica 2019-2030 procura establecer redes colaborativas de interés interinstitucional que permita, tanto a la Policía Nacional como a los organismos directamente responsables de la generación de política pública dirigida a favorecer a las personas con discapacidades, establecer acciones que permitan garantizar de manera efectiva el alcance de una vida digna con iguales oportunidades para todas las personas.
4.4 Líneas sinérgicas del enfoque de discapacidades para el | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 278 | Nacional como a los organismos directamente responsables de la generación de política pública dirigida a favorecer a las personas con discapacidades, establecer acciones que permitan garantizar de manera efectiva el alcance de una vida digna con iguales oportunidades para todas las personas.
4.4 Líneas sinérgicas del enfoque de discapacidades para el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica, como política pública Tal como hemos visto en el recorrido de este enfoque, Ecuador ha tenido avances significativos en relación al desarrollo de una normativa e institucionalidad que permita articular los esfuerzos, tanto desde el ámbito público, privado y de la sociedad civil, para atender desde una visión integral y con enfoque de derechos humanos las necesidades de las personas con discapacidad. Si bien esta institucionalidad es relativamente reciente, ha permitido reafirmar el compromiso estatal para garantizar la igualdad de derechos y condiciones que les permitan a las personas con discapacidad | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 279 | sociedad civil, para atender desde una visión integral y con enfoque de derechos humanos las necesidades de las personas con discapacidad. Si bien esta institucionalidad es relativamente reciente, ha permitido reafirmar el compromiso estatal para garantizar la igualdad de derechos y condiciones que les permitan a las personas con discapacidad mejorar su calidad de vida. De igual manera, se ha constituido en un modelo a seguir por otros países de la región, que han buscado replicar la experiencia ecuatoriana para lograr la plena inclusión y atención integral de las personas con discapacidad. La responsabilidad estatal frente a las personas con discapacidad ha implicado la comprensión de sus realidades y de sus necesidades específicas, como también la sensibilización de la sociedad y la ruptura de patrones culturales en los cuales la discapacidad se abordaba desde una óptica de caridad y beneficencia. Esto conlleva a la transverzalición en todas las funciones del | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 280 | discapacidad ha implicado la comprensión de sus realidades y de sus necesidades específicas, como también la sensibilización de la sociedad y la ruptura de patrones culturales en los cuales la discapacidad se abordaba desde una óptica de caridad y beneficencia. Esto conlleva a la transverzalición en todas las funciones del Estado y en las instituciones del sector público, del principio de igualdad y no discriminación de las personas con discapacidad para el ejercicio pleno de sus derechos. En este sentido, la importancia de este enfoque en el Plan de Seguridad Ciudadana y Convivencia Social Pacífica, radica en llamar la atención sobre las principales vulnerabilidades que presentan las personas con discapacidad y la necesidad de 110 111
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
contar con acciones especializadas en materia de seguridad ciudadana, que permitan erradicar las diferentes formas de violencias hacia este grupo | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 281 | sobre las principales vulnerabilidades que presentan las personas con discapacidad y la necesidad de 110 111
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
contar con acciones especializadas en materia de seguridad ciudadana, que permitan erradicar las diferentes formas de violencias hacia este grupo y de esta manera cumplir con el mandato constitucional de asegurarles una vida libre de violencia, maltrato o cualquier forma de explotación. Para ello, el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica 2019-2030, mantiene alineación con todos los instrumentos normativos e institucionales, tanto nacionales como internacionales, que coadyuven a mejorar las condiciones de seguridad de las personas con discapacidad, como lo determina la Constitución de la República.
5. Enfoque de movilidad humana. El concepto -movilidad humana- es relativamente nuevo y existe para referirse a los procesos concretos que cualquier persona, familia o grupo humano realiza o experimenta para establecerse | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 282 | a mejorar las condiciones de seguridad de las personas con discapacidad, como lo determina la Constitución de la República.
5. Enfoque de movilidad humana. El concepto -movilidad humana- es relativamente nuevo y existe para referirse a los procesos concretos que cualquier persona, familia o grupo humano realiza o experimenta para establecerse temporal o permanentemente en un sitio diferente a aquel en donde ha nacido o residido hasta el momento. Considerando el Acuerdo Defensorial de Defensoras y Defensores del Pueblo de la Región Andina (2009), “incluye a personas emigrantes, inmigrantes, solicitantes de refugio, refugiadas, asiladas, apátridas, migrantes y desplazadas internas, víctimas de trata y tráfico de personas y sus familias, desde su dimensión de género, generacional, étnica, ambiental, entre otras” (Acuerdo Defensorial, 2009, p. 1). Estas categorías responden a fenómenos multicausales de orden voluntario o forzado, donde convergen una serie de factores de expulsión (pobreza, desigualdad, violencia, discriminación, cambio climático, desastres naturales | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 283 | trata y tráfico de personas y sus familias, desde su dimensión de género, generacional, étnica, ambiental, entre otras” (Acuerdo Defensorial, 2009, p. 1). Estas categorías responden a fenómenos multicausales de orden voluntario o forzado, donde convergen una serie de factores de expulsión (pobreza, desigualdad, violencia, discriminación, cambio climático, desastres naturales o antrópicos) y otros de atracción (mayor y mejor acceso a derechos, seguridad, reunificación familiar, mayor estabilidad política, entre otros) (Benavides y Rodas, 2009). Los temas migratorios se colocan en la agenda internacional desde finales de los años noventa donde se da una proliferación de espacios de diálogo en materia migratoria, tanto a nivel gubernamental como de la sociedad civil, y se coloca con fuerza la ecuación migración y desarrollo. En la actualidad, la movilidad humana comprende la migración internacional y la migración interna, concepto que está en constante evolución, dadas sus múltiples causas, así como sus variadas consecuencias para | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 284 | migratoria, tanto a nivel gubernamental como de la sociedad civil, y se coloca con fuerza la ecuación migración y desarrollo. En la actualidad, la movilidad humana comprende la migración internacional y la migración interna, concepto que está en constante evolución, dadas sus múltiples causas, así como sus variadas consecuencias para las personas y los Estados de origen, tránsito y destino. Supera, por tanto, a las definiciones tradicionales de migración y la abarca junto con otros conceptos reconociéndola como un derecho humano al amparo de la Declaración Universal de los Derechos Humanos (1948) dado que la naturaleza humana a lo largo de la historia se definió por procesos de movilidad (Valdiviezo, 2012). En el marco de las Naciones Unidas, la movilidad humana es concebida desde una visión garantista de derechos, y como tal, debe ser entendida desde distintos niveles de análisis: individual, nacional y sistémico.
1. Nivel individual: la movilidad humana se | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 285 | de la historia se definió por procesos de movilidad (Valdiviezo, 2012). En el marco de las Naciones Unidas, la movilidad humana es concebida desde una visión garantista de derechos, y como tal, debe ser entendida desde distintos niveles de análisis: individual, nacional y sistémico.
1. Nivel individual: la movilidad humana se produce por múltiples motivaciones, voluntarias o forzadas, vinculadas a la aspiración de todo ser humano a mejorar sus condiciones sociales y económicas. Ello no resta el enfoque de la movilidad producida en contextos de crisis. Sin embargo, el principal riesgo de que la movilidad humana no sea segura, ordenada, regular y digna, se basa en no considerarla como un derecho, lo cual expone a los migrantes a muros, barreras e inadmisiones que provocan discriminación, intolerancia, violencia, trabajo forzoso y diversas formas de esclavitud, entre otras.
2. Nivel nacional: son las acciones locales que, en procura de mitigar los riesgos de la | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 286 | y digna, se basa en no considerarla como un derecho, lo cual expone a los migrantes a muros, barreras e inadmisiones que provocan discriminación, intolerancia, violencia, trabajo forzoso y diversas formas de esclavitud, entre otras.
2. Nivel nacional: son las acciones locales que, en procura de mitigar los riesgos de la migración, apuntan a una gestión migratoria adecuada y proponen políticas, planes y programas inclusivos, progresivos, universales, transversales y planificados, desde un enfoque integral, acompañados por un proceso integrador con la sociedad civil y con el apoyo de organismos internacionales.
3. Nivel sistémico: los contextos actuales de crecientes asimetrías estructurales a nivel global limitan el desarrollo sostenible y generan pobreza, 112 113
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
desigualdad, conflictos y, como consecuencia y en este contexto, la persona en movilidad se enfrenta a mayores desafíos y dificultades, tanto en el país de origen, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 287 | global limitan el desarrollo sostenible y generan pobreza, 112 113
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
desigualdad, conflictos y, como consecuencia y en este contexto, la persona en movilidad se enfrenta a mayores desafíos y dificultades, tanto en el país de origen, como en el de acogida.
5.1 Antecedentes normativos e institucionales El marco normativo del Ecuador en materia de movilidad humana ha pasado por tres etapas:
I. Un enfoque de control y seguridad con el Decreto Supremo de Extranjería de 1938 y posteriormente las Leyes de Extranjería de los años 1940, 1947 y 1971. En este último año se expidieron también las Leyes de Migración y de Naturalización.
II. La Reforma a la Ley de Extranjería en el año 2004, que surgió con la migración masiva de ecuatorianos al exterior, sin modificar sustancialmente la realidad del Ecuador como actor en la dinámica migratoria internacional.
III. | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 288 | 1971. En este último año se expidieron también las Leyes de Migración y de Naturalización.
II. La Reforma a la Ley de Extranjería en el año 2004, que surgió con la migración masiva de ecuatorianos al exterior, sin modificar sustancialmente la realidad del Ecuador como actor en la dinámica migratoria internacional.
III. La Constitución del año 2008, con la que se fortalecen los derechos intrínsecos de la población y el reconocimiento de la libre movilidad humana y la ciudadanía universal como ejes de la política exterior. Durante los últimos años, los esfuerzos por garantizar los derechos de las personas en situación de movilidad humana han sido significativos en el Ecuador. Esto ha permitido evidenciar el interés del país por abordar la política pública de movilidad humana desde una perspectiva integral, que rebasa la visión netamente sectorial, y la plantea como una responsabilidad de varios actores y sectores, tanto de la sociedad civil | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 289 | movilidad humana han sido significativos en el Ecuador. Esto ha permitido evidenciar el interés del país por abordar la política pública de movilidad humana desde una perspectiva integral, que rebasa la visión netamente sectorial, y la plantea como una responsabilidad de varios actores y sectores, tanto de la sociedad civil como de la comunidad internacional y del Estado. Una política de “fronteras abiertas” trae consigo la necesidad de abordar la política pública desde un enfoque progresista y garantista de derechos y no únicamente desde el control de los flujos migratorios. Si bien la movilidad humana puede ser vista como una alternativa para promover el desarrollo de los países, ésta suele presentar problemáticas que son el resultado de políticas y procedimientos desordenados, confusos e ineficientes. El crecimiento continuo de los flujos migratorios trae consigo el incremento de las responsabilidades de los Estados por procurar que este proceso se dé de una | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 290 | alternativa para promover el desarrollo de los países, ésta suele presentar problemáticas que son el resultado de políticas y procedimientos desordenados, confusos e ineficientes. El crecimiento continuo de los flujos migratorios trae consigo el incremento de las responsabilidades de los Estados por procurar que este proceso se dé de una manera ordenada y efectiva, pero, más allá de eso, se busca que se realice de manera segura para proteger los derechos de las personas migrantes. La trata y el tráfico de personas son problemas a los que se debe hacer referencia en esta política integral sobre movilidad humana, visualizándolas desde una perspectiva también integral que aborda lo referente a su prevención y sanción, así como lo correspondiente a la restitución de derechos de las víctimas.
5.1.1 Avances y limitaciones en torno a la garantía del derecho a la libre movilidad Tomando en cuenta las diferentes perspectivas de los países y las | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 291 | una perspectiva también integral que aborda lo referente a su prevención y sanción, así como lo correspondiente a la restitución de derechos de las víctimas.
5.1.1 Avances y limitaciones en torno a la garantía del derecho a la libre movilidad Tomando en cuenta las diferentes perspectivas de los países y las regiones frente a los crecientes flujos migratorios, y al tratamiento que se otorgaba a la migración en el escenario mundial y nacional, en el año 2008, a partir de la Constitución de Montecristi, Ecuador comenzó a defender los derechos de las personas en situación de movilidad humana. Para ello, promovió la apertura de las fronteras, la ciudadanía universal, la no criminalización de la migración, la igualdad ante la ley y la no discriminación, la protección de los ciudadanos ecuatorianos en el exterior, el principio pro persona en movilidad humana, el interés superior en la niña, el niño y el adolescente | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 292 | la apertura de las fronteras, la ciudadanía universal, la no criminalización de la migración, la igualdad ante la ley y la no discriminación, la protección de los ciudadanos ecuatorianos en el exterior, el principio pro persona en movilidad humana, el interés superior en la niña, el niño y el adolescente migrante, y la no devolución, además de la integración regional en materia de políticas de movilidad humana. En este sentido, el contenido sobre movilidad humana que recoge la Constitución busca deconstruir la idea comúnmente aceptada, que vincula al reconocimiento y ejercicio de derechos a la nacionalidad; es decir, la vinculación de la ciudadanía a la pertenencia a un Estado. Esto significa dejar de asumir que, por el hecho de cruzar una frontera y tener una nacionalidad diferente a la del país de destino, deban restringirse automáticamente los derechos de las personas. Esta 114 115
Plan Nacional de Seguridad Ciudadana y Convivencia Social | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 293 | de la ciudadanía a la pertenencia a un Estado. Esto significa dejar de asumir que, por el hecho de cruzar una frontera y tener una nacionalidad diferente a la del país de destino, deban restringirse automáticamente los derechos de las personas. Esta 114 115
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
concepción provoca la existencia de un trato diferenciado, tanto desde la legislación como desde las prácticas cotidianas, que usualmente termina por ser discriminatorias y xenofóbicas. Bajo estos principios, la Ley Orgánica de Movilidad Humana, promulgada en el mes de febrero de 2017, en su artículo 167, establece la transversalización del enfoque de movilidad humana en el sector público, para lo cual todos los niveles de gobierno deben incluir en sus políticas, planes, programas, proyectos y servicios con dicho enfoque. Además, el nuevo marco jurídico se establece en torno a tres a ejes: | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 294 | en su artículo 167, establece la transversalización del enfoque de movilidad humana en el sector público, para lo cual todos los niveles de gobierno deben incluir en sus políticas, planes, programas, proyectos y servicios con dicho enfoque. Además, el nuevo marco jurídico se establece en torno a tres a ejes: 1) la supremacía del ser humano como sujeto de derechos, 2) el buen vivir y 3) la seguridad humana. De ahí que, este instrumento normativo considera a la movilidad humana “como los movimientos migratorios que realiza una persona, familia o grupo humano para transitar o establecerse temporal o permanentemente en un Estado diferente al de su origen o en el que haya residido previamente, que genera derechos y obligaciones” (Ley Orgánica de Movilidad Humana, 2017, art. 3, num. 8). No obstante, en el actual contexto se perfilan grandes tensiones referidas a la garantía y el real ejercicio de estos derechos, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 295 | un Estado diferente al de su origen o en el que haya residido previamente, que genera derechos y obligaciones” (Ley Orgánica de Movilidad Humana, 2017, art. 3, num. 8). No obstante, en el actual contexto se perfilan grandes tensiones referidas a la garantía y el real ejercicio de estos derechos, en muchos casos reduciéndose a un simple reconocimiento formal. En el caso de los derechos de movilidad humana se evidencian ciertos nudos críticos que se traducen en situaciones de xenofobia e inclusive de violencia, en contra de personas de otra nacionalidad. Podemos ubicar el reconocimiento del derecho a migrar para todas las personas, tanto ecuatorianas como de otra nacionalidad. Este reconocimiento, además de ser una reivindicación de las personas en movilidad, significa un cambio sustancial en la visión con la que ha sido manejado este tema, pues implica que toda acción u omisión de las instituciones estatales respecto del ingreso, | [
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