APPENDIX 2
Memorandum submitted by Save the Children
AFGHANISTAN—"A
CHILDREN'S
CRISIS"
"Apart from the imperative of establishing
durable peace and security, a special and overarching challenge
facing Afghanistan is the grave situation of children and youth.
Investing particularly in their education, nutrition and basic
medical care must become top priority for both the Government
of Afghanistan and the international community."
Mr Olara Otunno, United Nations Secretary General's
Special Representative for Children and Conflict, July 2002
1. Executive Summary
Human suffering and insecurity continue to plague
Afghanistan. Even before the United States initiated air attacks
in October 2001, Afghans had lived through more than two decades
of war, and three years of severe drought. In 1979, the United
Nations Development Programme (UNDP) cited Afghanistan as one
of the poorest countries in the world.
Today, a complex combination of factors affect
the situation of Afghans. The international intervention has improved
the lives of some. However, the ongoing war, insecurity, lack
of effective governance, and the failure of the international
community to live up to its promises mean that for many, the suffering
continues.
Some of the most vulnerable groups include those
who have been displaced by conflict and drought (estimated to
be 800,000), and those among the 1.7 million who have returned
to the country in 2002 but lack adequate means to resettle. 5.9
million people are estimated by World Food Programme (WFP) to
be highly vulnerable to food insecurity. These Afghans are dependent
on external aid for survival, and the international community
has failed to meet their needs. Of the £1.8 billion pledged
at the March Donors Conference in Tokyo, only $560 million has
been disbursed.
2. Key issues affecting children
— Insecurity and violence are affecting
families throughout the country. The worst affected areas are
in the south and southwest, especially along the border with Pakistan,
but sporadic periods of tension and outbreaks of violence occur
throughout the country.
— Conflict, drought and lack of resources
have caused about 800,000 people to leave their homes in search
of shelter and work. [1]This
contributes to the continuing erosion of coping mechanisms for
the poor in many parts of the country, especially remote parts
of the central highlands, much of the south, and among pastoral
communities.
— Health services are inadequate and
in some rural areas are non-existent. Services outside the large
towns remain heavily dependent on Non Governmental Organisations.
Of particular concern is the lack of good mother and child, and
reproductive health services.
— 1.5 million children still remain
out of school. [2]
— Internally displaced and returnee
women and children are vulnerable to lack of protection.
— A predicted breakdown in the World
Food Programme pipeline from December means continuing food insecurity
over the winter.
3. Recommendations to the UK Government
Save the Children believes that the UK Government
must prioritise the needs of children in its humanitarian assistance
and reconstruction programmes and is calling on the Government
to:
— Ensure that relief needs funded for
the coming winter. 800,000 people are still internally displaced,
and an average of 1,000 per day are returning from Pakistan and
Iran. [3]Many
of these people will require shelter material, clothes and blankets.
— Ensure funding is released to provide
sufficient food over the winter for the estimated 5.9 million
people still highly vulnerable to food insecurity. World Food
Programme are reporting a likely breakdown in the food pipeline
just as winter arrives and are requesting urgent cash contributions
from donors.
— Address the longer term needs for
reconstruction and rehabilitation of livelihoods and services.
SC UK is especially concerned that services for children remain
inadequate. Education particularly is a key issue, with 1.5 million
children out of school. The Islamic Transitional Government of
Afghanistan needs support and resources to cover the country's
educational needs.
— Enable the Transitional Government
of Afghanistan to be seen to be contributing to the reconstruction
of the country, by ensuring that pledges made at the Tokyo reconstruction
conference are met.
— Address the protection needs of internally
displaced children and their families since they are offered insufficient
protection under the United Nations High Commission for Refugees
mandate.
— Encourage the Transitional Government
of Afghanistan to enable all members of the community, including
women, to participate in local decision making.
— Follow up on recommendations made
by Mr. Olara Otunno, the United Nations Secretary General's Special
Representative for Children and Conflict, made on his recent visit
to Afghanistan. Among these, Mr Otunno called for:
"A National Commission for Children—There
is a need of an overarching, crosscutting framework to give prominence
and focus, in a comprehensive way, to key issues concerning the
rehabilitation and development of children. A National Commission
for Children would play such a role, ensuring that the concerns
of children are translated into policy-making, priority-setting
and resource allocation at the highest political and policy levels.
Child Protection Adviser in United Nations AMA—A
Child Protection Adviser (CPA) should be included in the staff
of the United Nations AMA, in accordance with Security Council
Resolution 1379, to ensure that the protection, rights and rehabilitation
of children and youth is a priority in all aspects of United Nations
activities in Afghanistan, and to help place the concerns of Afghanistan's
children prominently into national policy and reconstruction agenda."
The priorities of children should be reflected
in programmes aiming to meet their needs.
Save the Children recommends that the UK Government
takes steps to ensure these recommendations are acted upon.
THE CRISIS
FOR CHILDREN
TODAY
4. Summary of Humanitarian Conditions
— 25 per cent of children in Afghanistan
die before the age of five—the fourth highest child mortality
rate in the world.
— An estimated 20 per cent of infants
die before they reach their first birthday.
— 60 per cent of children's deaths
are preventable.
— 50 per cent of all Afghan children
suffer from chronic malnutrition.
— An estimated 2 million children are
refugees or internally displaced. [4]
5. Donor Funding
There is still a $166 million shortfall in funding
required to meet Afghanistan reconstruction and humanitarian priorities
by 2003. A total of $5 billion was pledged to support Afghanistan
long-term reconstruction and rehabilitation needs at the Tokyo
Conference in March, of which $1.8 billion was pledged for 2002.
Of this, only $1 billion has been committed thus far. A recent
Afghanistan Government report states that of this just $560 million
has actually been disbursed, of which only $90 million has been
given directly to the government to support its operations. [5]The
vast majority of this funding was channelled to fund humanitarian
work, leaving a significant funding shortfall for reconstruction
and rebuilding. As of September 2002 the UK Government, meanwhile,
had disbursed just $85 million of the total $285 million pledged.
Afghan leader Hamid Karzai told the United Nations General Assembly
on September 12th that the international community has failed
to deliver on its promises of reconstruction help.
This failure to disburse funds has been a major
constraint on the impact of Non Governmental Organisations. Save
the Children UK has been able to implement approximately 50 per
cent of its projected activities due to funding shortfalls.
United Nations agencies resource needs have
also not been met, in particular those of the United Nations High
Commission for Refugees and the United Nations World Food Programme.
The United Nations World Food Programme is facing a shortfall
of $64.1 million, or 22.5 per cent of the total resources needed.
[6]Both
organisations are requesting that donors live up to their cash
pledges to avert the food pipeline from being cut off in mid-December.
United Nations High Commission for Refugees is seeking an additional
$100 million for 2002.
6. Security situation
In his speech to the World Bank on 26 September
2002, United States Secretary of State Colin Powell stated that
"One year ago Afghanistan was an exporter of instability
to the region. Today it seeks to become a contributor to regional
well being. The new transitional administration is reaching out
to its neighbours, ready to cooperate with them on such issues
as terrorism, border and customs control, and narcotic trafficking".[7]
Powell's speech contrasts sharply with the daily
insecurity that plagues the lives of most Afghans throughout the
country. The security situation in Afghanistan is very complex,
with warlords and militia factions competing for control. Semi-independent
warlords are experiencing threats from emerging militia groups,
and there are reports of the re-emergence of the Taleban, and
of divisions and rivalries within the government in Kabul. In
the north, there is insecurity in Samangan, Saripul, and Jowzjan
provinces. The threat of car bombs, rockets and similar devices
remains in and around Kabul. (Targets seem to have been International
Security Assistance Force/coalition troops and United States embassy).
Kandahar, the south, and southeast remain insecure. There are
reports of large quantities of arms and ammunition coming into
Kandahar from Pakistan via Spin Boldak. Inter-tribal fighting
continues around Khost and Gardez. Some of this fighting is quite
severe. [8]
The war between the United States-led coalition
and Taleban militias continues in the south of Afghanistan. On
5 September there was an attempted assassination of Hamid Karzai,
leader of the transitional Afghanistan Government. Though he survived,
his future remains unsafe. In July 2002 Vice President Haji Qadir
was murdered in the street. Meanwhile, there have been bombing
incidents in Kabul City, including a car bomb that killed 11 people.
It is evident from this insecurity that central government is
unable to bring local leaders under control. [9]
The establishment of an Afghan army and fully
trained police force which elicits public confidence, and with
respect of law and human rights lies at the heart of efforts to
bring security to areas.
7. Returning Refugees
According to United Nations High Commission
for Refugees, 1.7 million people have returned to Afghanistan
over the last calendar year. Of these 400,000 are expected to
return to and remain in Kabul, the majority of them from Pakistan.
While numbers of those returning from Pakistan are decreasing,
numbers from Iran are increasing. Thousands of people continue
to repatriate daily. At the same time many of the Internally Displaced
Persons camps have dispersed with people returning to villages
or towns to settle. The rate of return has exceeded expectations,
and United Nations High Commission for Refugees and the International
Organisation of Migration are seeking a more rapid delivery of
funds pledged by donors to cope with the situation. An additional
$100 million is being sought by the United Nations High Commission
for Refugees for 2002. There is growing concern that many of those
who have returned may consider moving again as their food supplies
run short and shelter becomes a serious issue as the winter approaches.
According to a Reuters report, the UN has had to cut rations to
returning refugees as food stocks run low. [10]
8. Internally Displaced Persons
As of September 2002 there ere estimated to
be around 800,000 Internally Displaced Persons in the country.
According to the Internally Displaced Person Global Survey 2002,
the psychological impact of war, destruction, death and displacement
has been reported as an urgent need to be addressed. In Afghanistan,
the overwhelming majority of IDPs have known nothing other than
war and violence over last 25 years. The onset of winter will
pose particular problems. Contingency stockpiling of shelter materials,
stoves and heating fuel, needs to take place. The protection needs
of internally displaced women and children must urgently be addressed.
9. Winter
The temperatures can drop to minus 20 degrees
in winter in the central highlands. As winter sets in Afghans
will need help in returning to their homes, or in rebuilding their
homes where infrastructure has been destroyed.
10. Protection Needs of Women and Children
Protection is a key issue for Internally displaced
persons, as United Nations High Commission for Refugees mandate
does not allow them to intervene. Women and children are often
moved into camps and "safe locations" while men set
off in search of work. They can be left alone for months and must
make sense of new homes and unfamiliar camp infrastructure and
systems, where they are at risk of theft and violence. Women need
to be consulted when planning camps to ensure they are safe. According
to the European Union Rapid Response Mechanism Assessment, the
numbers of women and girls engaged in prostitution has increased.
One of the key priorities for Afghan women to delegates at Tokyo
was security. They have asked for improved security measures—providing
special protection to women in camps for refugees and displaced
people.
Adolescents have been largely ignored as a group
when it comes to policy making and programming. Currently adolescent
boys have little or no access to education, jobs, or responsible
role models. Boys are vulnerable because they may have access
to drugs, arms, and can be drawn into illicit activities, while
girls rights are seldom a priority in the family, making them
vulnerable to exploitation.
The numbers of children in work are growing,
especially in towns. There are thought to be around 50,000 working
children in Kabul, [11]by
far the highest such population in the country, and about 4,000
in Mazar I Sharif[12].
When families from villages migrate to the city, the elders may
not be qualified to earn a living placing a heavy burden on children
who may be the only family members who are able to earn in the
new environment. Failure to contribute adequately may result in
physical abuse. While children traditionally work in poor rural
households, urban work poses different problems. Available work
is often situated far away from children's homes, where their
families are less able to protect them. Work can also be dangerous;
for instance children may be forced to use welding equipment without
eye protection, to carry heavy weights, or to work long hours.
Finally, children who work tend to miss schooling, are likely
to remain illiterate and have limited prospects for the future.
11. Food security
Preliminary findings for World Food Programme
Vulnerability Analysis Mapping Assessment have been published.
[13]The
most vulnerable provinces are assessed as being in the south and
east, as well as Uruzgan, Bamyan, and Wardak, Badakshan, Baghlan,
Takhar, Ghor, Saripul, Faryab, and Farah. The World Food Programme
(WFP) and Food and Agriculture Organisation (FAO) have warned
that, in spite of increased overall cereal production, some 5.9
million people in Afghanistan will remain highly vulnerable to
food insecurity and will continue to need food assistance during
2002-03. The pipeline is expected to dry up completely at end
of December, unless further replenishments are agreed. The country's
cereal needs are currently 84,500 tonnes. The WFP Afghanistan
Emergency Operation as of 20 September faced shortfall of 22.5
per cent or $64.1 million.
The objective of the WFP vulnerability assessment
was to determine where food aid is required, and the type and
severity of food insecurity in villages visited. Results show
that food security has generally improved in north and west. The
principal areas of concern are southern and eastern provinces
as well as Uruzgan, Bamyan and Wardak, where drought continues
to have a negative impact. Pockets of acute levels of food insecurity
found in northeastern provinces of Badakhshan, Baghlan, and Takhar.
Central Highlands and provinces of Ghor, Sari Pul, Faryab, and
Farah, continue to experience high levels of food insecurity.
Just 10 per cent of irrigated land has been cultivated in the
north-central parts of the country. In the south, drought-affected
populations are considering migration to other areas in search
of job opportunities and other sources of income and food.
12. Health
United Nations OCHA information published on
the 30 September 2002 on maternal health states that maternal
mortality rates in Herat are at 593 deaths in every 100,000 live
births. According to Physicians for Human Rights 97 per cent of
those interviewed (4,637 respondents) had received untrained birth
attendance[14].
Women's rights to adequate health care, food, shelter and clean
water will directly improve their health. Access to health care
is dictated by the availability of health infrastructure, trained
health personnel and medicines, and by access to money for paying
costs and the priority which families accord to women and children's
health. Particular attention must be focused on the health needs
of rural areas. [15]
13. Education
Education is instrumental in meeting children's
protection needs. It offers a structure to provide protection
for all children. As such, education should be prioritised alongside
assistance to health, sanitation, food security and shelter. More
resources must be channelled to the education sector. Over the
next four months, $70 million is being sought to repair damaged
schools, to establish school health programmes which will provide
health services for teachers and students; to expand training
programmes for untrained teachers to the provinces; to print and
distribute 15.5 million textbooks; and to quip the Ministry of
Education. [16]A
total of $800 million is sought to cover the country's educational
needs in the next two years.
There are currently 4.5 million children eligible
for school enrollment in the country, but only three million are
enrolled in school, leaving 1.5 million children excluded from
attending school. The Afghanistan Ministry of Education was ready
to absorb 1 million children in school, meaning two million pupils
lack the necessary materials and basic supplies. [17]
75 per cent of all schools in Afghanistan lack
furniture and basic supplies, such as blackboards, chalk, and
stationery. All laboratories, libraries and technical workshops
have been eliminated from schools. Of the existing schools in
the country, 3,525 need major repairs and 1,738 minor repairs.
Many schools also lack safe drinking water and are unable to provide
adequate sanitation. [18]
Afghanistan currently has 64,850 teachers leaving
a shortfall of 28,610.[19].
Some of the problems linked to teacher recruitment include a lack
of qualified teachers in general, and an inability to provide
teachers with the requisite living conditions to attract them
to rural areas.
14. Participation by Women and Children in
Decision-making
The EU Rapid Response Mechanism report recommends
that women's involvement in reconstruction and development can
be encouraged through some of the following initiatives:
— Training rural women in leadership
and representation.
— Strengthening community-based women's
decision-making and representation.
— Supporting the formation of civil
society groups (such as parent-teacher associations, and mother's
groups).
— Finding ways to facilitate the cross-fertilisation
of ideas between women in political organisations, civil society,
Non Governmental Organisations and the private sector.
— Finding ways to use the expertise
and skills developed by Afghan women's Non Governmental Organisations
to improve programming in rural areas.
Save the Children
October 2002
1 UNHCR Situation Report. Back
2
Asian Development Bank. Back
3
UNCHR Situation Report. Back
4
Figures from the 2002 UNOCHA Joint Appeal. Back
5
Afghanistan Interim Administration Briefing delivered at Meeting
in Kabul August 2002. Back
6
Centre for Humanitarian Co-operation. Back
7
US State Department Information www.usinfo.state.gov. Back
8
British Agencies Afghanistan Group Security Situation Report
September 2002. Back
9
ibid. Back
10
www.reliefweb.int 18.08.02. Back
11
Figures from Terre des Hommes. Back
12
Save the Children UK figures. Back
13
WFP www.wfp.org. Back
14
www.phrusa.org. Back
15
www.reliefweb.int/ocha. Back
16
UNICEF www.unicef.org. Back
17
Afghanistan Interim Authority Report. Back
18
ibid and UNICEF. Back
19
Asian Development Bank www.adb.org. Back
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