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June 2010
Setting the Right Priorities:
Protecting Children Affected by Armed Conflict in Afghanistan
Watchlist Mission StatementThe Watchlist on Children and Armed Conflict strives to end violations against children in armed conflicts and to guarantee their rights. As a global network, Watchlist builds partnerships among local, national and international nongovernmental organizations, enhancing mutual capacities and strengths. Working together, we strategically collect and disseminate information on violations against children in conflicts in order to influence key decision makers to create and implement programs and policies that effectively protect children.
Watchlist works within the framework of the provisions adopted in UN Security Council Resolutions 1261, 1314, 1379, 1460, 1539, 1612, 1882, the principles of the Convention on the Rights of the Child and its protocols and other internationally adopted human rights and humanitarian standards.
General supervision of Watchlist is provided by a Steering Committee of international nongovernmental organizations known for their work with children and human rights. The views presented in this report do not represent the views of any one organization in the network or the Steering Committee.
For further information about Watchlist or specific reports, or to share information about children in a particular conflict situation, please contact:
watchlist@watchlist.org www.watchlist.org
Photo CreditsCover Photo: Mats Lignell/Save the Children
Please Note: The people represented in the photos in this report are not necessarily themselves victims or survivors of human rights violations or other abuses.
June 2010
Setting the Right Priorities:
Protecting Children Affected by Armed Conflict in Afghanistan
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistanii
Notes on Methodology. InformationcontainedinthisreportiscurrentthroughMarch1,2010.. Thisreportprimarilyreflectsinformationdrawnfromsecondarysourcesavailableinthepublic
domain.Informationiscollectedthroughanextensivenetworkoforganizationsthatworkwithchildrenaroundtheworld.Analysisisprovidedbyamultidisciplinaryteamofpeoplewithexpertiseand/orexperienceintheparticularcontext.Somesourcesareconfidentialandarenotlistedtoprotecttheirsafety.Whencitingthisreport,informationshouldbeattributedtotheoriginalsourcetotheextentpossible.. Duetoinsecurityandaccessrestrictions,thereislimitedinformationonthehumanrightsandhumanitariansituationintheareasofongoingarmedconflict.. ThereportdealsmainlywithAfghanistanbutmanyoftheprotectionconcernsareinfactoccurringalongtheAfghanistan-Pakistanborderanddemandacross-borderorregionalapproach.Informationonthesecross-borderconcernsislimitedduetoaccessrestrictions.
Notes on Terminology. ThereportfollowstheUNdefinitionofeightregionsinAfghanistan:centralhighlands,eastern,
southeastern,southern,western,northern,andnortheastern,andthecapitalregionaroundKabul.. AfghanistanusesthePersiancalendarwhosedatesdonotcorrespondtotheGregoriancalendar,theinternationallyacceptedcivilcalendar.ThisreportusestheGregoriancalendardatesandalsoincludesthePersiancalendardatesiftheywereprovidedintheoriginalsourcepublication,e.g.1387(2008-2009).. AfghanSecurityForcescomprisethearmy,thearmyaircorpsandthenationalpolice.
Important Updates. OnMarch22,2010,theUNSecurityCouncil,initsResolution1917,extendedthemandateofthe
UnitedNationsAssistanceMissioninAfghanistan(UNAMA)foroneyearthroughMarch23,2011.ThenewmandaterepeatedtheCouncil’scallfortheimplementationofSecurityCouncilResolutions(SCR)1612(2005)andSCR1882(2009)onchildrenandarmedconflictanditsrequesttotheSecretary-GeneraltofurtherstrengthenthechildprotectioncomponentofUNAMA,inparticularthroughtheappointmentofchildprotectionadvisors.. TheMarjahoffensive,ajointAfghan-NATOmilitaryoperationthattookplaceinFebruary2010,wasintendedtoserveasatestingcaseforNATO’snewstrategytofocusonprotectingciviliansincounterinsurgencyefforts.Despitetheseefforts,TheAfghanRedCrescentSociety(ARCS)estimatedthat35 civilianshaddiedandanadditional37wereinjuredduringthemilitaryoperation.Surveysamong400menfromMarjah,LashkarGahandKandaharalsoindicatethattheoffensivenegativelyimpactedlocalperceptionsofNATOforces,accordingtotheInternationalCouncilonSecurityandDevelopment(ICOS).. WatchlistreportnotesthattherehadbeenareductionofciviliancasualtiesbyinternationalmilitaryforcesinAfghanistanfrom2008to2009.OnMay12,2010,theU.S.DepartmentofDefenseannouncedthatthenumberofcivilianskilledbyU.S.andNATOforceshadincreasedby76percent(to90reportedciviliandeaths)fromJanuarytoApril2010comparedtothesameperiodin2009(51deaths).TheU.S.governmentattributesthisrisetothestepped-upeffortsinthewaragainsttheTaliban,accordingtoReuters,“CiviliansCasualtiesRisinginAfghanistan,”May12,2010.TheU.S.DepartmentofDefensedidnotcommentonthepercentageofchildrenkilledbyinternationalmilitaryforces.
Watchlist on Children and Armed Conflictiii
Table of ContentsList of Acronyms ............................................................................................. 1
Indicators ........................................................................................................ 3
International Standards ................................................................................. 4
Executive Summary ........................................................................................ 5
Context ............................................................................................................ 8
Major Armed Conflicts ................................................................................................... 8
International Efforts for Peace and Security ............................................................ 8
The Return to Violence................................................................................................... 8
Rebuilding the Country ................................................................................................. 9
Humanitarian Access .................................................................................... 11
Deterioration of Humanitarian Access ....................................................................11
Violating Humanitarian Principles ...........................................................................11
Killing and Maiming ..................................................................................... 13
Military and Other Attacks .........................................................................................13
Assistance to Survivors and Impunity for Perpetrators .......................................13
Children Living with Disabilities ...............................................................................14
Refugees and IDPs ........................................................................................ 16
Internally Displaced Persons ......................................................................................16
Refugees ..........................................................................................................................16
Health ............................................................................................................ 19
Access to Services..........................................................................................................19
Maternal Death and Reproductive Health .............................................................20
Infectious Diseases .......................................................................................................20
Malnutrition ...................................................................................................................21
Water and Sanitation ..................................................................................................21
Drug Addiction ..............................................................................................................21
Psycho-Social Disorders ..............................................................................................21
HIV/AIDS ........................................................................................................ 23
The Spread of HIV/AIDS ...............................................................................................23
Treatment and Care .....................................................................................................23
Education ...................................................................................................... 24
School Enrollment and Attendance .........................................................................24
Monitoring and Reporting on Attacks ....................................................................24
Attacks against Schools, School Children and Teachers .....................................24
Protecting Schools from Attacks ...............................................................................25
Conflict-Related Barriers to Education ....................................................................25
Abduction ..................................................................................................... 28
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistaniv
Gender-Based Violence ................................................................................ 29
Prevalence of Gender-Based Violence .....................................................................29
Silence and Impunity ...................................................................................................29
Lack of Services for GBV Survivors ............................................................................29
Child Soldiers ................................................................................................ 32
Recruitment by Afghan Security Forces ..................................................................32
Recruitment by Private and Auxiliary Forces .........................................................32
Recruitment by the Taliban and Other Armed Opposition Groups ..................32
Disarmament, Demobilization and Reintegration for Children .......................33
Detention of Children Formerly Associated with Armed Groups ......................33
Small Arms .................................................................................................... 35
Scope of the Problem ...................................................................................................35
Disarmament Efforts ...................................................................................................35
Landmines and Explosive Remnants of War .............................................. 37
Scale of Contamination and Impacts ......................................................................37
Demining and Mine Risk Education .........................................................................37
Other Violations and Vulnerabilities ........................................................... 39
Child Labor .....................................................................................................................39
Exploitation and Trafficking ......................................................................................39
Illegal and Arbitrary Arrest of Children....................................................................40
UN Security Council Actions ........................................................................ 41
UNSC Resolutions on Children and Armed Conflict .............................................41
UNSC Actions on Afghanistan ...................................................................................41
Implementation of UNSC Resolutions on Children and Armed Conflict in Afghanistan .........................................................................41
The UN Security Council Working Group on CAC .................................................42
Endnotes ....................................................................................................... 45
Sources .......................................................................................................... 50
Map of Afghanistan ...................................................................................... 53
Watchlist on Children and Armed Conflict1
List of AcronymsAI AmnestyInternationalACBAR AgencyCoordinatingBodyforAfghanReliefAIHRC AfghanIndependentHumanRightsCommissionANDS AfghanistanNationalDevelopmentStrategyANSO AfghanistanNGOSafetyOfficeAREU AfghanistanResearchandEvaluationUnitARV AntiretroviralTreatmentBPHS BasicPackagesofHealthServicesCAC ChildrenandArmedConflictCAAC ChildrenaffectedbyArmedConflictCEDAW UNCommitteeontheEliminationofDiscriminationAgainstWomenCIVIC CampaignforInnocentVictimsinConflictCPA ChildProtectionAdvisorCPAN ChildProtectionActionNetworkCTFMRM CountryTaskForceontheMonitoringandReportingMechanismDIAG DisbandmentofIllegalArmedGroupERW ExplosiveRemnantsofWarFATA FederallyAdministeredTribalAreasFRU FamilyResponseUnitGBV Gender-BasedViolenceGOA GovernmentofAfghanistanHAP HumanitarianActionPlanforAfghanistanHRW HumanRightsWatchICG InternationalCrisisGroupICRC InternationalCommitteeoftheRedCrossIDMC InternalDisplacementMonitoringCentreIDPs InternallyDisplacedPersonsIEC IndependentElectionCommissionIED ImprovisedExplosiveDeviceILO InternationalLabourOrganizationINGO InternationalNongovernmentalOrganizationISAF InternationalSecurityAssistanceForceMACCA MineActionCoordinationCentreofAfghanistanMoU MemorandumofUnderstandingMRE MineRiskEducationMRM MonitoringandReportingMechanismMSF MédecinsSansFrontièresNATO NorthAtlanticTreatyOrganizationNDS NationalDirectorateforSecurityNGO NongovernmentalOrganizationNLD NationalLeagueforDemocracyNSAG Non-StateArmedGroupsNWFP NorthWestFrontierProvinceOCHA UNOfficefortheCoordinationofHumanitarianAffairsOEF OperationEnduringFreedomOHCHR OfficeoftheHighCommissionerforHumanRightsPRT ProvincialReconstructionTeamsRI RefugeesInternationalSCR UNSecurityCouncilResolutionSCWG-CAC UNSecurityCouncilWorkingGrouponChildrenandArmedConflictSOP StandardOperatingProcedureSRSG SpecialRepresentativeoftheSecretary-GeneralSRSG-CAC SpecialRepresentativeonChildrenandArmedConflictUN UnitedNations
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan2
UNAMA UNAssistanceMissioninAfghanistanUNDP UNDevelopmentProgrammeUNDSS UNDepartmentofSafetyandSecurityUNHCR UNHighCommissionerforRefugeesUNICEF UNChildren’sFundUNIFEM UNDevelopmentFundforWomenUNODC UNOfficeonDrugsandCrimeUNSC UNSecurityCouncilUSDA UnionSolidarityandDevelopmentAssociationUSFOR-A U.S.ForcesAfghanistanUSDOS U.S.DepartmentofStateUXO UnexplodedOrdnanceWHO WorldHealthOrganization
Watchlist on Children and Armed Conflict3
IndicatorsINDICATORS Afghanistan
Population 23.8millionpeoplein2005;1asof2008,46.5%wereyoungerthan142
Gross National Income (GNI) per Capita
US$466in2008(UNStatisticsDivision)
Refugees and Internally Displaced Persons (IDPs)
AsoftheendofDecember2009,anestimated297,000IDPsinAfghanistan,including161,000childrenAsofJanuary2010,approximately1.6millionregisteredrefugeesinPakistan,includingabout1.18millionchildren,andapproximately1millionregisteredrefugeesinIran,including345,000children3
Infant Mortality 165/1,000in20084
HIV/AIDS Afghanistan’sNationalAIDSControlProgramregistered559casesasofNovember2009;UNAIDSandWHOputthenumberofreportedcasesmuchhigherat1,000to2,000.5
Education Estimated74%nationalnetenrollmentrateforboysand46%forgirls6;only11%ofboysand5%ofgirlsenrolledinprimaryschoolcontinueontograde12.7
Gender-Based Violence (GBV) Rapeisa“widespreadphenomenon”thataffectswomen,boysandgirls.Actsofsexualviolencearecommittedbyarmedgroupsorcriminalgangsaswellasfamilymembers,guardiansorcaretakers.Asaresultofthetaboosurroundingtheissue,therearefewpubliclyreportedcasesandnocomprehensiveorofficialdataavailableonrapeandgender-basedviolence.8
Childmarriageisalsocommon,withnearlyhalfofallmarriagesinvolvingboysandgirlsundertheageof18.9
Trafficking TraffickingofchildrenwithinthecountryandintoPakistanandIranisaseriousconcern;somechildrenareexploitedbyarmedgroupsorcriminalgangstocarryoutillegalactivitiessuchassmuggling.10
Landmines and Explosive Remnants of War (ERW)
AsofDecember2009,therewere630km2ofmine-affectedland;734recordedinstancesofchildreninjuredorkilledbylandminesandotherexplosivesin2008and2009;626weremalesand105females.11
Small Arms Estimatesfornumbersofsmallarmsrangefrom1.5millionto10million;12nostatisticaldataisavailableonchildreninjuredorkilledbysmallarms.
Child Soldiers AfghanSecurityForcesandarmedoppositiongroupshaverecruitedanunknownnumberofchildrenthroughoutthecountry.Mostofthereportedcasesofchildrecruitmentinnationalsecurityforceswereduetopoorbirthregistrationsystems,weakageverification,andtherisingdemandforpoliceandsoldiers.Armedgroupshaverecruitedchildrentobeusedasfighters,campguardsorsuicidebombers,particularlyalongtheAfghanistan-Pakistanborder.13
Abductions and Disappearances
Mostcasesofabductionanddisappearancearerelatedtotraffickingbycriminalnetworks;thereissomeconfirmedinformationofchildrenabductedortransferredtoPakistanwheretheyhavereceivedmilitarytraining.14
Attacks on Humanitarian and Human Rights Workers
Afghanistanrepresentsoneofthemostviolentenvironmentsforaidworkers,especiallynationalstaff,worldwide.15Areported19NGOstaffandatleast11UNstaffwerekilledin2009.16
Please note: DuetoextremelylimitedaccesstocertainareasofAfghanistan,especiallywhereactivefightingistakingplace,thereisaseveregapinreliablenationwidedata.Thegenerallackofsocio-economicanddemographicdataisfurthercompoundedbyweakinstitutionalandtechnicalcapacitiestoproduceinformation.
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan4
International Treaties Signed (S)/ Ratified (R)/ Acceded (A) (Year)
International Treaties Not Signed
•ConventionontheRightsoftheChild(R,1994)
•OptionalProtocoltotheConventionontheRightsoftheChildontheinvolvementofchildreninarmedconflict(A,2003)
•OptionalProtocoltotheConventionontheRightsoftheChildonthesaleofchildren,childprostitutionandchildpornography(A,2002)
•TheGenevaConventionsI,II,IIIandIVof1949(R,1956)
•ProtocolIoftheGenevaConventions,RelatingtotheProtectionofVictimsofInternationalConflicts(A,2009)
•ProtocolIIoftheGenevaConventions,relatingtotheProtectionofVictimsofNon-InternationalArmedConflicts(A,2009).
•ConventiononthePreventionandPunishmentoftheCrimeofGenocide(A,1956)
•ConventionontheEliminationofAllFormsofDiscriminationagainstWomen(R,2003)
•InternationalCovenantonEconomic,SocialandCulturalRights(A,1983)
•ConventionagainstTortureandOtherCruel,InhumanorDegradingTreatmentorPunishment(R,1987)
•InternationalCovenantonCivilandPoliticalRights(A,1983)
•ConventionRelatingtotheStatusofRefugees(A,2005)
•ProtocolRelatingtotheStatusofRefugees(A,2005)
•ConventionontheProhibitionoftheUse,Stockpiling,ProductionandTransferofAnti-PersonnelMinesandontheirDestruction(A2002)
•ConventiononClusterMunitions(S,2008)
•RomeStatuteoftheInternationalCriminalCourt(A,2003)
•ProtocolIIIoftheGenevaConventions,relatingtotheAdoptionofanAdditionalDistinctiveEmblem
•ILOConvention182ontheWorstFormsofChildLabor
•ProtocolagainsttheIllicitManufacturingofandTraffickinginFirearms,TheirPartsandComponentsandAmmunition,supplementingtheUnitedNationsConventionagainstTransnationalOrganizedCrime
•OptionalProtocoltotheConventionagainstTortureandOtherCruel,InhumanorDegradingTreatmentorPunishment
•InternationalLabourOrganization(ILO)Convention29onForcedLabor
•ILOConvention87onFreedomofAssociationandRighttoOrganize
•ProtocoltoPrevent,SuppressandPunishTraffickinginPersons,EspeciallyWomenandChildren,supplementingtheUnitedNationsConventionagainstTransnationalOrganizedCrime
UN Security Council Actions Relating to Children and Armed Conflict in Afghanistan
UNSecurityCouncilResolutionsonAfghanistan TheUNSecurityCouncilpassed27resolutionsonAfghanistanbetween2001andMarch1,2010ofwhichsixspecificallyreferredtochildren.Theseare1419(2002),1833(2008),1806(2008),1868(2009),1890(2009)
UNSecurityCouncilResolutionsonChildrenandArmedConflict(CAC)
1882(August2009);1612(July2005),1539(April2004),1460(January2003),1379(November2001),1314(August2000),1261(August1999)
UNSecurityCouncilWorkingGroupConclusionsonCACinAfghanistan
S/AC.51/2009/1(July2009)
International Standards17
Watchlist on Children and Armed Conflict5
Executive Summary
Children bear the brunt of the ongoing armed conflict in Afghanistan. In2009,atleast346childrenwerekilledinaerialstrikesandsearch-and-raidoperationsbyinternationalspecialforcesaswellasbyassassinationsandsuicidebombingsbyanti-governmentelements.Inaddition,landmines,explosiveremnantsofwarandotherexplosiveshavekilledorseverelyinjuredhundredsofchildren,particularlyboyswhoplayoutside,tendanimals,orcollectfood,waterorwood.Armedgroupshavealsodamagedanddestroyedschools,targetingstudents(especiallygirls),teachersandotherswhoareseenassupportiveofAfghanistan’seducationsystem.
ThousandsofAfghanfamilieshavebeenforcedtofleetheirhomesduetoarmedconflictandeconomichard-ships.Morethanhalfofthecountry’sinternallydisplaced–approximately161,000people–arechildren;anaddi-tional1.5millionchildrenarerefugeesinPakistanandIran.
Despitesomeprogressinexpandingbasichealthservicestoawidepopulation,infantandmaternalmortalityisalarminglyhigh.Afghanistanremainstheworstplaceintheworldforanewbornchild,accordingtochildprotectionagencies.
Current strategies of the Afghan government and its international supporters – though aimed at protecting civilians - have largely neglected the specific needs of children affected by armed conflict. Thisreluctancetocommittotheprotectionofchildrenisreflectedinpolicyandfundingdecisions.TheLondonConference18communiquéofJanuary2010whichservedasthe“roadmap”toaddresssecurity,governanceandeconomicconcernsinAfghanistanoverthenextfiveyears,didnotrefertochildren’sneedsdespitethesevereimpactthatitsdecisions,suchasplannedoffersofamnestyto
Talibansoldiers,willhaveontheirsecurity.OnlyonechildprotectionadvisorhasbeenstationedattheUnited NationsAssistanceMissioninAfghanistan(UNAMA),despiterepeatedcallsbytheUNSecurityCounciltoallocatemoreresourcestobolsterUNAMA’schildprotectioncapacity.
Keydecisionmakershavealsoneglectedtheadviceofchildprotectionagencies.Duringthe2009presidentialelectionforinstance,Afghanistan’sIndependentElectionCommissionignoredrepeatedwarningsofUNagencies,nongovernmentalorganizationsandsomegovernmentalagenciesnottousehealthfacilitiesandschoolbuildingsaspollingstations.Thisdisregardultimatelyresultedinmultipleattacksonschoolsandhospitals.
The protection of children’s rights should not be limited to “safe“ areas, or stop at Afghanistan’s borders. In2009,approximately43percentofthecountrywascutofffromhumanitarianassistance,particularlyintheconflict-affectedsouth,southeastandpartsofthewest.Limitedaccessresultedinthousandsofchildrenmissingoutonurgentlyrequiredservicesofferedvianationalhealthandeducationcampaigns.
ThelackofaccessduetoinsecurityhasalsoseverelyhamperedtheworkoftheUN-ledMonitoringandReportingMechanism(MRM)inAfghanistanwhichwassetuptoaddressthesixgraveviolationsagainstChildrenandArmedConflict(CAC)inaccordancewithUNSecurityCouncilResolutions1612and1882,whichincludekillingormaimingofchildren,abductions,recruitmentoruseofchildsoldiers,attacksagainstschoolsandhospitals,rapeorothergravesexualviolenceagainstchildren,andthedenialofhumanitarianaccesstochildren.
Inaddition,thereisinsufficientinformationavailableontheextentofviolationsthatarecross-borderinnature,includingchildrecruitmentortraffickingandtheexploita-tionofchildrentosmuggledrugsorillegalgoods.Inordertoholdperpetratorsoftheseviolationsaccountableandto
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan6
providemoresystematicresponsestochildren,protectionactorsshouldmakeaconcertedefforttoengagewithallpartiestoconflict,concernedgovernmentsandlocalcommunities.
Theprotectionofwar-affectedchildrenmeritsspecialattentionandmustbemadeastrategicpriorityastheAfghangovernment,withsupportfromtheinternationalcommunity,laysoutplanstobringlastingpeaceandstabilitytothecountry.
ThefollowingarekeyrecommendationsfromWatchlist’sreport:
1. Ensure that the protection of children from conflict-related violence becomes a top priority in policy and funding decisions on Afghanistan
The Government of Afghanistan (GoA) and its international supportersshouldsetspecificbenchmarksonchildprotectionagainstwhichprogresscanbemeasured.Thiscouldincludedevelopingan“AgendaforChildrenAffectedbyArmedConflict”alongthelinesoftheAfghanistanCompact,whichsetsoutspecificgoalsforthenextfiveyearsandestablishesacoordinationmechanismtoensureimplementationandmonitoringofthisplan.
The UN Security Council Working Group on Children and Armed Conflict (SCWG-CAC)shouldensurethatcoreconcernsrelatingtochildrenaffectedbyarmedconflictarereflectedinthetermsofreferenceoftheupcomingSecurityCouncilfieldvisitplannedformid-2010.ThisincludesfollowinguponthecommitmentsmadebytheGoAandinternationalmilitaryforcestotheSpecialRepresentativeonChildrenandArmedConflict(SRSG-CAC)duringherrecentvisit.
The UN Secretary-GeneralshouldensuretheimmediatedeploymentofadditionalchildprotectionadvisersthroughoutthecountryinanefforttostrengthenthechildprotectioncomponentofUNAMA,asrecommendedbytheUNSecurityCouncil.
The SCWG-CAC and relevant donorsshouldrequestaninformationalbriefingwithchildprotectionactorsandcivilsocietyrepresentativesinordertobetterunderstandtheroleofcommunity-basedmecha-nismsinAfghanistantopreventattacksagainstschools,andhowtobettersupporttheseinitiatives.
The SCWG-CACshouldrequestanindependentassessmentoftheimpactofprojectsthatarefundedoroperatedbyProvincialReconstructionTeams(PRTs)onthesecurityandwell-beingofchildreninAfghanistan.TheassessmentshouldexplorealternativewaystoassistchildrenlivinginareasthatarenotaccessiblebyUNagenciesorNGOs.
DonorsshouldfollowtheGoodHumanitarianDonorshipPrinciplessothatfundingisallocatedinproportiontotheneedsofthemostvulnerablepopulations,includingchildren,andnottofurtherpoliticalgoals.
2. Take effective measures to prevent violations against children in armed conflict and end impunity for perpetrators
Non-state armed groupsshouldimmediatelyhaltallviolationsperpetratedagainstthesecurityandrightsofAfghanchildren.
Haltallsuicideandimprovisedexplosivedevice(IED)attacksonciviliantargets.
Refrainfromattacksandthreatsofattacksagainstschools,teachers,educationstaff,studentsandparentsatthelocalandnationallevel.
Stopoperatingoutofschoolsandothercivilianfacilities,andendtheuseofhumansasshields.
The GoA and international military forcesshouldensurethatsystemsforinvestigatingallegedviolationsagainstciviliansaretransparent,timelyandindependentlymonitored.Theresultsoftheseinvestigationsshouldbepubliclysharedandincludedatadisaggregatedbyageoncombatantandciviliancasualties.
All parties to the conflictshouldfullycooperatewiththeCountryTaskForceontheMonitoringandReportingMechanism(CTFMRM)toprepareandimplementactionplanstoendtherecruitmentanduseofchildsoldiers,rapeandothergraveactsofsexualviolenceandkillingandmaimingofchildreninlinewithUNSecurityCouncilResolutions1540,1612and1882.Commandersshouldequallyworktowardshaltingallviolationsagainstchildren.
Watchlist on Children and Armed Conflict7
The GoAshouldrepealthereconciliationandgeneralamnestylawandholdallperpetratorsofviolationsagainstcivilians,includingchildren,accountableinaccordancewithnationalandinternationallaw.
The GoAshouldunderallcircumstancesavoidtheuseofeducationandhealthfacilitiesintheupcomingelectionsandforotherpoliticalpurposes.
The GoAshouldadapttheEliminationofViolenceagainstWomenActtoincludeadefinitionofrapethatcomplieswithinternationalstandardsandbringsperpetratorstojusticeinaccordancewithUNSecurityCouncilResolutions1820and1888.
The GoAshouldcriminalizechildrecruitmentandtheuseofchildsoldiers,andactivelyprosecutethosewhoexploitchildrenassoldiers.TheGoAshouldworkcloselywithUNagenciestorefineagedeterminationproceduresandgrantfullaccesstoalltraininganddetentionfacilities,includingthoseoftheNationalDirectorateofSecurity(NDS),formonitoringpurposes.
3. Strengthen monitoring, reporting and response on all violations committed against children, including those committed in Afghanistan’s conflict zones and across its borders
The UN Country Team in Afghanistan,underthededicatedleadershipoftheSpecialRepresentativeoftheSecretary-GeneralforAfghanistan(SRSG),shouldcommitstaffandresourcestoprioritizechildprotectionwithintheirrespectiveagencies,includingthefullimplementationofSecurityCouncilResolutions1612and1882throughoutthecountry.
The Country Task Force on the Monitoring and Reporting Mechanism (CTFMRM)shouldworkwithallpartiestotheconflicttocapturecriticalinforma-tionthatcouldpreventviolationsagainstchildrenandmoreeffectivelyassistsurvivors,includingmonitoringearlywarningsignsaswellasthecircumstancessurroundingtheattacksandtheirimpact.Quarterlyreportsfromtheirevaluationsshouldbeusedtotracktrendsandinformevidence-basedadvocacy.
DonorsshouldsupportstrengtheningthecapacityofChildProtectionActionNetworks(CPAN),whichconsistofgovernmentalandnongovernmentalorganizationsinAfghanistan,torespondmoreeffectivelytoviolationsagainstchildren.
The SCWG-CACshouldrequesttheUNHighCommissionerforRefugees(UNHCR)and/ortheRepresentativeoftheSecretary-Generalonthehumanrightsofinternallydisplacedpersons(IDPs)toleadastudytodeterminevulnerabilitiesandrisksfordisplacedandrefugeechildrenfromAfghanistan.Thestudy’sfindingswouldbethefirststeptowardsenactingacomprehensiveactionplantofinddurablesolutionsfordisplacedchildrenfromAfghanistan.
The Government of PakistanshouldinvitetheSpecialRepresentativeonChildrenandArmedConflict(SRSG-CAC)toconductamissioninPakistantoidentifypotentialwaystoimprovecoordinationinending“cross-borderviolations”thatimpactchildrenaffectedbyarmedconflictsuchasthedrugtrade,traffickingandsmallarmstrade.
The Secretary-GeneralshouldrequesttheUNCountryTeamsinAfghanistanandPakistan,undertheleadershipoftheSRSG-CAC,toestablishaUNregionalstrategytocontributeactivelytotheprotectionofchildrenaffectedbycross-borderviolations.
The UN Country Team in PakistanshouldestablishaWorkingGrouponChildrenaffectedbyArmedConflicttomoreeffectivelyaddresstheconcernsofAfghanrefugeechildren,andcooperatewiththeCTFMRMandotherchildprotectionagenciesinAfghanistantoaddressissuesofcommonconcern,includingcross-borderrecruitmentofchildsoldiersandtrafficking.
The Afghan Independent Human Rights Commission (AIHRC)shouldcoordinatecloselywiththeindependentHumanRightsCommissionofPakistan(HRCP)toconductjointmonitoringandreportingalongtheircommonborderareas.
Executive Summary
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan8
Context
Major Armed ConflictsIn1979attheheightoftheColdWar,SovietforcesinvadedAfghanistantofightaproxywar.AfterthewithdrawaloftheSovietforcesin1989,factionalfightingamongvariousarmedgroupscontinueduntil1996,whenthecapital,Kabul,wastakenbytheTaliban,afundamentalistIslamicgroup.By2001,theTalibancontrolled90percentofthecountryandimposedanewregimebasedonthestrictestversionofSharia,orIslamiclaw,denyingbasicrightstowomenandchildren,includingaccesstoeducation,andsubjectingthemtocruelpunishments.
FollowingtheterroristattacksofSeptember11,2001,aU.S.-ledcoalitionintervenedinAfghanistanandwiththeNorthernAlliance,anAfghanoppositionarmedgroup,soonremovedtheTaliban,whichhadharboredAlQaeda,aterroristnetwork,frompower.Thisinterventioninitiatedaprocessofpolitical,securityandsocialreformsaimedatestablishingademocraticallyelectedAfghangovernmentandrebuildingpeaceinthesocietyafternearlythreedecadesofwar.
International Efforts for Peace and SecurityTheBonnAgreementofDecember2001laidthefoundationforAfghanistan’sfuturegovernment,whichledtotheestablishmentofatransitionalauthorityin2001,theadoptionofanewconstitutionin2004,andpresidentialandparliamentaryelectionsin2005.InordertosupporttheAfghanSecurityForcestomaintainsecurity,theUNSecurityCouncilauthorizedmemberstatestoformtheInternationalSecurityAssistanceForce(ISAF),whichoperatesunderChapterVIIoftheUNCharter.Since2003,ISAFhasbeenledbyNATOandasofMarch5,2010,iscomprisedofapproximately89,480troopsfrom44differentcountries.Moretroopsareanticipatedtoarriveinthefirsthalfof2010,bringingthetotalnumberofISAFtroopstoabout100,000.InadditiontoISAF,atleast12,000mostlyU.S.forcesaredeployedalongtheAfghanistan-Pakistan
borderunderthemandateofOperationEnduringFreedom(OEF),ajointU.S.,UKandAfghanoperation.Allinterna-tionalmilitaryforcesoperatinginAfghanistan–whetherunderISAForOEF–areplacedundertheoperationalcontroloftheU.S.ForcesAfghanistan(USFOR-A).Linkedtothesemilitaryefforts,ISAFmemberstateshavealsodeployed26ProvincialReconstructionTeams(PRTs)inAfghanistan,whichincludemilitaryandciviliancompo-nentstofacilitatedevelopment,reconstructionandgovernanceeffortsinvariouspartsofAfghanistan.
Since2002,theUNAssistanceMissioninAfghanistan(UNAMA)hasbeenmandatedbytheSecurityCounciltosupportthegovernmenttobuildpeacethroughthepromotionofhumanrights,reconstructionanddevelop-ment.UNAMAworksasan“integrated”mission,meaningthatitaimstoaddressdevelopmentandhumanitarianissues,aswellaspoliticalaffairs.UNAMAhasalsoassistedthegovernmentinimplementingkeyframeworksforcooperationwiththeUnitedNationsandtheinternationalcommunity,includingtheAfghanistanCompactof2006andtheAfghanistanNationalDevelopmentStrategy(ANDS).Withastaffof1,500militaryandcivilianemployees,mostofwhicharenationalstaff,UNAMAisoneofthesmallerUNoperationsworldwide.Inthebeginningof2009,UNAMAaddedachildprotectionadvisor,whoworkscloselywiththemission’svarioussections,particularlytheHumanRightsUnit.
The Return to ViolenceThenewgovernmentandinternationalsupportforthepeace-buildingprocesssparkedhopeamongmanyAfghans,instigatingthevoluntaryrepatriationofmillionsofrefugeesfromIranandPakistantoAfghanistanimmedi-atelyafterthedefeatoftheTaliban.However,thesecuritysituationdeterioratedsignificantlyafter2004.19From2004to2010,theareasexperiencingongoingattackshaveextendedfromthesouthandsoutheasttotheareasthatwereearlierdeemedsecure,includingthenorthernand
Watchlist on Children and Armed Conflict9
easternregions.Violenceagainstcivilianshasnotonlyspreadthroughoutthecountrybuthasalsointensifiedinthelastfewyears,asdemonstratedbytheriseinciviliancasualtiesfromabout1,500civilianskilledin2007,toover2,100killedin2008andmorethan2,400civilianskilledin2009,accordingtoUNAMA’sannualreportsontheprotectionofciviliansinarmedconflict.20
ManyTalibanforcesandotherarmedgroupsneverlefttheirstrongholdsinAfghanistan.OthersregroupedintoareasalongtheAfghanistan-Pakistanborderandgainedstrength,largelyoperatingfromthesemi-autonomoustribal-dominatedareaofwesternPakistan,includingtheFederallyAdministeredTribalAreas(FATA),BaluchistanandtheNorthWestFrontierProvince(NWFP).GiventheTaliban’sfrequentcross-borderattacks,AfghanauthoritiesandtheinternationalcommunityhaveincreasedpressureonthePakistanigovernmenttotakestrongeractionagainsttheinsurgentsinnorthwestPakistan,includingthroughmilitaryoperations.21
Thesearmedoppositiongroupshaveusedinsurgencytacticstounderminethegovernmentandpushoutinternationalforces.Theyhavealsospecificallytargetedthoseseenassupportinggovernmenteffortssuchasteachers,healthprofessionalsandstudents.Commontacticsincludeattacksonschoolsandhospitals,theuseofindiscriminateimprovisedexplosivedevices(IEDs)andemployingsuicideattacksinhighlypopulatedareas.TheauthorityofthecentralgovernmentisfurtherlimitedbytheexistenceofshadowgovernmentsestablishedbytheTalibaninmanyprovinces,warlordsclaimingownershipofcertainareasandtheexpansionofcriminalnetworks.Insomeareas,localmilitias–allegedlywithclandestinesupportfromtheAfghanandAmericangovernments–alsoconductmilitaryoperationsagainstinsurgentswhichriskunderminingtheruleoflawduetotheirlackofformaltrainingandaccountabilitystructures.22
Intensifiedaerialattacksbyinternationalmilitaryforceshavealsokilledcivilians.Inseveralinstances,theAfghangovernmentandinternationalandnationalhumanrightsorganizationshavequestionedwhetheraerialbombard-mentswereproportionalandnecessary.23Inresponse,thecommanderofU.S.andNATOforcesinAfghanistan,GeneralStanleyMcChrystal,revisedthestrategyofinternationalmilitaryoperationsandissuedtacticaldirectivestotroopsunderhiscommandwiththespecificgoalofavoidingciviliancasualtiesandincreasingtransparencyandaccountabilityofmilitaryoperations.24Thisstrategyhasresultedinareductionofrecordedciviliancasualtiesbyinternationalforcesin2009andinthefirstfewmonthsof2010.25Yet,thecontinuingdeteriorationofthesecuritysituationandthelackofbasichealthandsocialservicesin
manyareashavemadeitdifficultforinternationalmilitaryforcestogaintheAfghanpeople’ssupportforcounterin-surgencyandreconstructionefforts.
Rebuilding the CountryAfterdecadesofconflictandcorruptgovernance,Afghanistancurrentlydependsalmostentirelyoninterna-tionalsupportformaintainingsafety,rebuildingitseconomic,politicalandlegalstructuresandpayingforsuchbasicservicesaspolicing,healthcareandeducation.Despiteprogressachievedinthehealthandeducationsectorinrecentyears,AfghanistanhasbeenconsistentlyrankednearthebottomoftheHumanDevelopmentIndexwiththemajorityofAfghanslivinginextremepoverty.26Incontrast,economicactivityintheblackmarket–oftencoupledwithcriminalactivity–hasbeengrowing,partlyduetothegovernment’sinabilitytoenforcetheruleoflaw,particularlyintheborderareas.Forinstance,asignificantshareoftheestimatedUS$4billionnetprofitofdrugtraffickinggoestoarmedgroupsthroughdirectinvolve-ment,briberyandtaxation,accordingtotheUNOfficeforDrugsandCrime(UNODC).27Extortionandmisbehavioraswellasimpunitybythepoliceandseniorgovernmentofficialshaveleftlocalpeopleinsomepartsofthecountryresentfultowardstheirowngovernment.28
Moreover,institutionalizedcorruptionpreventsthegovernmentfromestablishingtheruleoflawandinstillingtrustamongcitizensintheirstateinstitutions.Localpowerbrokershavebeenaccusedofbribinggovernmentofficialsandlawenforcementagencies,orusingpatronagelinkagestoevadeprosecution,accordingtothe2009reportoftheUNOfficeoftheHighCommissionerforHumanRightsonthesituationofhumanrightsinAfghanistan.29Inthe2009elections,HamidKarzaiwasaffirmedasPresidentofAfghanistanafterthefirstroundwasdeclaredfraudulentbyaUN-backedcommissionandthesubsequentsecondroundwithdrawalofKarzai’smainrivalwhocitedalackoftransparencyintheproceedings.Suchreportsofcorruptionbyhigh-levelstateofficialsriskunderminingnotonlythecredibilityoftheAfghangovernmentbutalsooftheUNandthewiderinternationalcommunitybackingit.
AttheLondonConferenceinJanuary2010,theAfghanleadershipanditsinternationalpartnersagreedtoa“roadmap”settingoutafive-yearmilitaryandcivilianstrategytoaddressthesecurity,governanceandeconomicconcernsofthecountry.ConferenceparticipantsagreedthatinternationalmilitaryforceswouldgraduallytransferresponsibilityforAfghansecuritytothenationalgovern-mentandbytheendof2011,theAfghanarmywouldexpandtrooplevelsfrom97,000to171,600,andthenationalpoliceforcesfrom94,000to134,000.30Further,
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donornationspromisedtosupportthegovernment’splansforanAfghan-ledNationalPeaceandReintegrationProgrammetolurelow-andmid-levelinsurgentsawayfromviolencebyofferingeconomicincentives.Theyalsowelcomedthegovernment’splanstoholdaloyajirgathatwouldbringgovernmentofficials,triballeadersandsomemoderateTalibanleaderstogethertodiscussstepstowardsresolvingthecurrentconflict.TheLondonConferenceparticipantsannouncedUS$1.6billionindebtrelief,andappealedtodonorsforUS$870millioninhumanitarianaid.Thespecificsofthefive-yearplanareexpectedtobedeterminedataconferenceinKabulinmid-2010.
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Humanitarian Access
Deterioration of Humanitarian AccessTherewereapproximately1,300nationalNGOs,300internationalNGOsand16UNorganizationsengagedinhumanitariananddevelopmentassistanceinAfghanistanasofJanuary2010,accordingtotheAgencyCoordinatingBodyforAfghanRelief(ACBAR).Intensefighting,landminesandtargetedattacksorthreatsagainststaffmembersoftenpreventtheseaidorganizationsfromassistingchildrenandtheircommunitiesintheareasmostaffectedbytheconflict.31Afghanistanrepresentsoneofthemostviolentenvironmentsforaidworkersworldwide,accordingtotheHumanitarianPolicyGroup,anindependentthinktank.32In2009,approximately43percentofthecountrywasconsidered“high-risk”bytheUNDepartmentofSafetyandSecurity(UNDSS)andwascutofffromhumanitarianassistance,particularlytheconflict-affectedsouth,south-eastandpartsofthewest.33Asaresultoflimitedaccess,nationalhealthandeducationcampaignsmissthousandsofchildreninneed,andthecampaign’seffectivenessisundermined.Forexample,130,000childrendidnotbenefitfromtheUN-ledvaccinationcampaignagainstpolioin2009(seebelow:Health).
Despitelarge-scaleinternaldisplacement,ongoingconflictandnaturaldisasters,mostdonorstateshavelargelyneglectedgrowinghumanitarianneeds.34The2010UNHumanitarianActionPlanforAfghanistan(HAP),themainmechanismforcoordinatinghumanitarianresponse,requestsatotalofUS$870millionfrominternationaldonors,a30percentincreaseinrequestedfundingcomparedtothe2009HAP.However,thedesireoftroop-contributingnationstoreinforcedevelopmentintheprovinceswheretheyareactivemeansthataidisnotnecessarilychanneledtotheareaswiththehighestneedsforhumanitarianordevelopmentaid.
Inadditiontodeprivingchildrenoftheirbasicrights,thelackofaccesstosomeoftheareasmostaffectedbytheconflictmakesitdifficultforaidorganizationstodefinetheneedsofchildrenandothervulnerablegroups.For
example,thecampaignoftheAfghangovernment,withsupportfromtheUnitedNationsChildren’sFund(UNICEF),toregisterallnewbornchildrenby2009hadtoleaveoutallchildrenlivinginremoteorinsecureareas.35Withonly1 percentofAfghansholdingabirthcertificateasof2008,informationfromthisregistrationexercisewouldhaveallowedthegovernmenttoobtainaccurateandcompre-hensivenumbersofchildrentoinformitsplanningforbuildingschoolsandhealthfacilities,aswellasvaccinationinitiatives.Moreover,thepossessionofabirthcertificateendowschildrenwiththerighttobenefitfromthespeciallegalprotectionframework,includingthespecificlawsonjuvenilejustice,andontherecruitmentanduseofchildrenbyarmedgroupsorforces.
Violating Humanitarian PrinciplesThemilitaryinvolvementindevelopmentactivitieshasendangeredAfghanciviliansandaidworkersastheseprojectsoftenbecomethetargetsofarmedoppositiongroups,leadingtotheblurringoflinesbetweenthemilitaryandhumanitarianmission.36TheUNOfficefortheCoordinationofHumanitarianAssistance(OCHA)re-establisheditspresenceinAfghanistaninOctober2008toadvocateformoreprincipledhumanitarianactionandtostrengthenindependenthumanitariancoordinationbytheUN.37Despitethispositivedevelopment,onastructurallevelOCHAremainsconnectedtoUNAMA–andtherebyitspoliticalmandate–asitisledbytheHumanitarianCoordinatorwhoalsofunctionsasDeputySpecialRepresentativeoftheSecretary-GeneralandResidentCoordinator.
ThedeteriorationofaiddeliveryinAfghanistanistoasignificantextentduetothenatureofPRTsandthewaytheyhavebeenimplemented.PRTs,whichusuallyconsistofamilitaryandasubstantiallysmallerciviliancontingent,carryoutreliefworkbutaredirectlymanagedbyISAFmemberstates.PRTstendtooperateinsomeofthemostinsecureareasthatareofflimitstotheUN,theAfghan
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan12
governmentandmanyNGOs.However,theirunderlyingpoliticalagenda–togainsupportforthegovernmentandtheinternationalpresence–undercutshumanitarianprinciplesofneutralityandimpartialityandmakesitevenharderforaidagenciestoretaintheirspaceinotherareas,accordingtoastudybyTuftsUniversity’sFeinsteinInstitute.38Moreover,NGOshavecriticizedPRTsfortheirlackoftechnicalexpertiseandtheabsenceofacoherentnationwidestrategyamongthevariousPRTs,whicharecurrentlyonlyaccountabletotheirhomegovernments.39InstanceswherePRT-ledprojectshaveprovenunsustain-abletendtonegativelyaffecthowcommunitiesviewandacceptinternationalaidworkers.
Inordertoclarifythespecificrolesandresponsibilitiesofcivilandmilitaryactors,UNagencies,ISAFandNGOsagreedtonon-bindingCivil-MilitaryGuidelinesinMay2008.40TheGuidelinesaffirmthatinprinciple,governmentandhumanitarianactorsareresponsibleforprovidinghumani-tarianassistance.Incontrast,theroleofthemilitaryisonlytoassistcivilianactorstoprovidebasicinfrastructureandurgentreconstructionassistanceinexceptionalcasesandasa“provideroflastresort.”Thisusuallyreferstocaseswheretheprotectionoftheperson’sphysicalsecurityrequiresamilitarypresence.Inaddition,theGuidelinescallfortheclearlyvisibledistinctionbetweenhumanitarian
andotheractors.However,somemilitaryactorshaveviolatedtheGuidelinesandinternationalhumanitarianprinciplesbyengaginginreliefactivitiesforforceprotectionpurposes.41HumanitarianactorshavealsonotedalackofawarenessoftheGuidelinesamongPRTstafforlackofcommitmentamongtroop-contributingcountriestoimplementthemduetotheirvoluntarynature.Inaddition,theimpactoftheGuidelinesislimitedastheUS-ledOEFhasnotagreedtoitsprovisionsandtheTalibanandotherarmedoppositiongroupsremainlargelyunawareofit.42
Intherecentpresidentialelections,Afghanistan’sIndependentElectionCommission(IEC)usedhealthfacilitiesandschoolbuildingsaspollingstations,citingthelackofalternativepublicbuildingsforthisuse.UNICEF,theWorldHealthOrganization(WHO),OCHA,theUNEducational,ScientificandCulturalOrganization(UNESCO),NGOsandseveralgovernmentofficialsrepeatedlywarnedofthesevereriskstothesecurityofstudentsandpatientsgiventheTaliban’soppositiontotheelections.43InAugust2009,themonthoftheelections,therewere249reportedincidentsagainsteducationcomparedto48reportedincidentsinthemonthofJuly,accordingtotheUN-ledCountryTaskforceontheMonitoringandReportingMechanism(CTFMRM).Inmanyofthesecases,insurgentshadattackedpollingstationslocatedinschools.
Recommendations on Humanitarian Access UN agencies, ISAF and NGOsshouldintegratechildprotectionbestpracticesandrelevantprovisionsof
SecurityCouncilResolutions1612and1882intotheCivil-MilitaryGuidelines,includingprohibitionsagainsttheuseofschoolsandstudentsforpoliticalpurposes.AdherencetotheGuidelinesshouldbereportedtotheExpertCommitteeonProtectionofCivilianstoinformitsrecommendationsregardingUNAMA’smandaterenewal.
International military forcesshouldensurethattheirstandardoperatingprocedures(SOPs)areinlinewiththeCivil-MilitaryGuidelines.ThisincludesprovidingregulartrainingsontheGuidelinesforallstaff,includingciviliansandPRTsandhighlightingtherelevantprovisionsrelatedtotheprotectionofchildren.
The SCWG-CACshouldrequestanindependentassessmentoftheimpactofprojectsthatarefundedoroperatedbyProvincialReconstructionTeams(PRTs)onthesecurityandwell-beingofchildreninAfghanistan.TheassessmentshouldexplorealternativewaystoassistchildrenlivinginareasthatarenotaccessiblebyUNagenciesorNGOs.
The GoAshouldunderallcircumstancesavoidtheuseofeducationandhealthfacilitiesintheupcomingelectionsandforotherpoliticalpurposes.
Humanitarian organizationsshouldinvolvelocalcommunitymembersintheplanning,executionandevaluationofdevelopmentassistanceprojectstoincreasetheirapplicabilityandlong-termimpact.
DonorsshouldfollowtheGoodHumanitarianDonorshipPrinciplessothatfundingisallocatedinproportiontotheneedsofthemostvulnerablepopulations,includingchildren,andnottofurtherpoliticalgoals.
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Killing and Maiming
Military and Other Attacks Thenumberofcivilianskilledandinjuredsince2006asaresultofthearmedconflicthasrisenatanunprecedentedrate.Nearly6,000civilianswereinjuredorkilledduetoconflict-relatedviolencein2009,andofthisnumber2,412 werekilled,accordingtoUNAMA’sannualreport,Protection of Civilians in Armed Conflict in Afghanistan, 2009.44Thismarksa14percentincreaseinciviliandeathsascomparedtothesametimeperiodthepreviousyear.Mostoftheincidentswererecordedinthesouth,southeastandeasternregionswhereaidorganizationshavelimitedaccessandhostilitieshaveescalated.In2009,346 childrenwerereportedlykilledduetoconflict-relatedviolence,including131throughairstrikesand22innightraidsbySpecialForces,and128werekilledthroughassassinations,suicidebombingsandotherattacksbyarmedoppositiongroups,accordingtoUNAMA.45Thisnumberdoesnotincludeincidenceswherechildrenwerekilledbylandminesandexplosiveremnantsofwar(ERW),andmightonlybeafractionoftheactualcasesashumanrightsmonitorshavelimitedaccesstoconflictzonesduetoinsecurity.TheAfghanIndependentHumanRightsCommission(AIHRC)reported520childrenkilledbywarringpartiesbetweenMarch2009andMarch2010,whichalsoincludesmine-relatedvictims.TheAfghanistanRightsMonitor(ARM),alocalhumanrightsgroup,reportedatleast1,050childrenkilledbysuicideattacks,airstrikes,improvisedexplosivedevices(IEDs),ERWsandincross-firebetweenwarringpartiesin2009.46
WhiletheTaliban’sCodeofConductinstructs“everymemberoftheMujahideen[to]dotheirbesttoavoidciviliandeaths,civilianinjuriesanddamagetocivilianproperty,”armedoppositiongroupshaveattimesdirectedtheirviolenceatcivilianstointimidatethemandunder-minethegovernment,stagingsuicidebombingsinhighlypopulatedareas,detonatingIEDsonbusycivilianroads,andattackingschoolsandhospitals(seebelow:EducationandHealth).Childrenhavealsobeentargetedbythesearmedgroupsandexecutedonallegationsofspyingfor
governmentorinternationalmilitaryforces,accordingtoUNsources.Therearealsoreportsofarmedgroupsdeliberatelyusingchildrenashumanshields.47
Mostoftheciviliandeathsattributedtopro-governmentforceswereasaresultofairstrikesand,toalesserextent,nightraidsofteninvolvingexcessiveuseofforce.Forexample,inMay2009,theU.S.claimedthatitrespondedtocallsbyAfghanArmedForcesforprotectionagainstinsurgentattackbyusingaerialbombardments,whichkilledatleast65childrenand21womeninavillageintheBalaBulokdistrictofFarahProvince,southwesternAfghanistan,accordingtoAIHRC.Independenthumanrightsorganizationshavestruggledtoverifysuchclaimsduetothelackoftransparencyininvestigationsconductedbyinternationalmilitaryforces.48Inmanyofthesecases,theuseofunreliablesourcesorfaultyintelligencehavecontributedtoincreasedciviliancasualties.49
OneofthemostproblematicaspectsforchildprotectionactorsisthatcontrarytotheConventionontheRightsoftheChild’sdefinition,ISAF’sCivilianCasualtiesTrackingCelldefinesachildasapersonundertheageof15.Thismakesitextremelydifficulttoaccuratelyassesstheimpactofmilitaryattacksonchildrenandmayleadtounderestimatesofthenumberofchildrenassociatedwitharmedgroups.
Childrenhavealsobeencaughtinthecross-fireasfightingbetweentheAfghanforcesandinternationalmilitaryforcesagainstarmedoppositiongroupscontinues.Similarly,landmines,ERWandotherexplosivesplacedbyarmedforcesandothergroupshavekilledhundredsofchildrenandinflictedpermanentinjuriesonothersthroughouttheconflict(seebelow:LandminesandERW).
Assistance to Survivors and Impunity for PerpetratorsFollowinganattack,childrenandtheirfamiliesusuallydonotevenreceivebasicinformationastowhohascommittedthecrime,thecircumstancesoftheincidentorthestatusandfollow-upofinvestigations,includingpotential
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan14
prosecutions.50Todate,therehasneverbeenanindictmentorconvictionofTalibancombatantsforcrimesagainsthumanityorwarcrimes,whichcanbepunishedunderinternationalanddomesticcriminallaw.Moreover,inFebruary2010,theAfghangovernmentputintoforcethereconciliationandgeneralamnestylawwhichgivesimmunitytoprosecutionforthoseengagedinthecurrenthostilitiesiftheyagreetoengagewiththegovernmentonreconciliation.HumanRightsWatch(HRW),theTransitionalJusticeCoordinationGroup,whichconsistsof24Afghancivilsocietyorganizationsandotherhumanrightsorganizationshaveraisedseriousconcernsregardingtheamnestylaw,arguingthatitwouldultimatelyunder-minethereconciliationandpeaceprocessandviolateinternationallaw.51
Theresponsesofinternationalmilitaryforcestoattacksinvolvingtheinjuryordeathofcivilianshasvarieddependingonthetroopsinvolved.However,thelackofpublicacknowledgement,prosecutionandcompensationhaveincreasinglycausedAfghancivilianstolosefaithininternationaltroops,accordingtoAIHRC.52InAugust2009,GeneralStanleyMcChrystal,thecommanderofNATOISAFandU.S.Forces,puttheprotectionofciviliansfromattacks,thereductionofciviliancasualtiesandtransparencyandaccountabilityformilitaryoperationsatthecenterofhiscounter-insurgencystrategy.53Aspartofthisstrategy,GeneralMcChrystalissuedaseriesofTacticalDirectivestoISAFandU.S.ForcesinAfghanistanthatprovidespecificinstructionstotroopsregarding“forceprotection,”airstrikesandnight-timeraids.54ISAF’sCivilianCasualtiesTrackingCellsandaparallelunitwithinUSFOR-A,thecommandandcontrolheadquartersforU.S.forcesoperatinginAfghanistan,wereestablishedtoensureamoresystematicmonitoringandresponsetoreportedincidents,includinginvestigationsandcompensation.
Asaresultoftheseinitiatives,fewercivilianswerereportedlykilledinairstrikesin2009thanin2008,accordingtoUNAMA’sfigures.Thefocusonciviliansisalsoreflectedinsomeofthedrasticresponsesthatsometroopshavetakenininstanceswherecivilianshavebecomethevictimsofmilitaryoperations:TheorderofGermanNATOforcestocarryoutanairstrikeinKunduzonSeptember3,2009,whichappearedtocontraveneMcChrystal’sdirectivesandISAFstandardoperatingprocedures,ledtotheresignationofthreeGermanseniorofficials.ANATOinvestigationconfirmedthatthemilitaryhadwithheldinformationthatcivilianshadbeenkilledintheincident.55
However,thereisstillnotransparent,comprehensiveandindependentlymonitoredsystemtoinvestigateviolationscommittedbymilitaryforcesandtoholdperpetratorsaccountableorauniformstrategyforcompensating
civilians.Compensationalsolargelydependsonthetroopsperpetratingtheattackandisprovidedonacase-by-casebasis,accordingtotheCampaignforInnocentVictimsinConflict(CIVIC).56Whilemosttroopsofferanex gratiapaymenttocivilianssufferinglossesincombatoperations,survivorsfaceseriousobstaclesinobtainingthisassistanceinatimelymannerduetothedifficultyinidentifyingthemilitaryunitresponsible,thelengthybureaucraticprocessinvolvedandthelackofaccesstoofficesreceivingcomplaints.57
AnumberofNGOshavethuscalledforamorepro-activeandsystematicapproachincontactingvictimsandtheirfamiliestoofferofficialapologies,informthemaboutthecircumstancesoftheincidentandtoexplaintothemhowtheycanraisecomplaintsandhavethemheardbyISAF.Theyalsourgedalltroop-contributingcountriestodevelopasystematic,transparentwayofcompensatingfamiliesandvictimsthatisstandardizedbyalltroop-contributingcountries.58
Children Living with DisabilitiesMorethan200,000childreninAfghanistanlivewithpermanentinjuriesanddisabilitiessufferedduringhostilitiesorasaresultofinadequatemedicalsupport,accordingtothemostrecentsurveybyHandicapInternationalin2005.ThegovernmentpaysamonthlypensionofUS$6toUS$10topersonswithdisabilities,whichbarelycoversthecostofmedicaltreatment,accordingtoHandicapInternational.59Schoolfacilitiesandteachersarenotequippedtoaddressthespecialneedsofstudentswithdisabilities,whichfurthercaststhechildrenintodisadvantageandisolation,accordingtoofficialsattheMinistryofEducation.60Only22.4percentofthe196,000childrenwithdisabilitiesinAfghanistanwhowouldhavequalifiedforschoolwereabletoattendschool,accordingtotheInternationalOrganizationofPersonswithDisabilities.61
AfghanistanhasnotsignedtheUNConventionontheRightsofPersonswithDisabilities,whichaskssignatorystatestoensurethat“childrenwithdisabilitiesarenotexcludedfromfreeandcompulsoryprimaryeducation,orfromsecondaryeducation.”Nationallegislationrelatedtopersonswithdisabilitiesiscurrentlyintheprocessofbeingapproved.Inordertofacilitateintegrationofchildrenwithdisabilities,theMinistryofEducationhasintroducedawareness-raisingcomponentsintheschoolcurriculumandisworkingonstrategiestoprovidespecializedandinclusiveeducation.62
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Recommendations on Killing and Maiming All parties to the conflictmusttakeallpossiblemeasurestoavoidciviliancasualties.Allallegedperpetrators
shouldbeheldaccountableinaccordancewithnationalandinternationallaw.
The GoA and international military forcesshouldensurethattheirinvestigationsintoallegedviolationsagainstciviliansaretransparent,timelyandindependentlymonitored.Theresultsoftheseinvestigationsshouldbepubliclysharedandincludedatadisaggregatedbyageoncombatantandciviliancasualties.
The GoAshouldrepealthereconciliationandgeneralamnestylawandholdperpetratorsofviolationsagainstcivilians,includingchildren,accountableinaccordancewithnationalandinternationallaw.
International military forces,incoordinationwiththerelatednationalmechanism(PresidentialFundandtheMinistryofLabor,SocialAffairs,Martyrs&Disabledcompensationmechanism),shoulddeviseauniformstrategyforcompensatingciviliansurvivorsofattacksandensurethatthesecompensationsystemsaremadeeasilyaccessibletovictims,includingchildren.
The GoAshouldimmediatelysignandimplementtheUNConventionontheRightsofPersonswithDisabilitiesand,withinternationalsupport,moreeffectivelyassistchildrenwithdisabilities.
Killing and Maiming
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan16
Refugees and IDPs
Internally Displaced PersonsThousandsofAfghanchildrenandtheirfamilieshavebeenforcedtofleetheirhomesduetoarmedconflictandeconomichardship.Inaddition,moreandmoreAfghanrefugeesarereturningfromothercountriesonlytofallagainintodisplacementintheirowncountryduetoinsecurityintheirplacesoforiginorlackofaccesstotheirpreviouslyownedland.Largeandmountingnumbersoftheinternallydisplacedremain“invisible”tothegovernmentandinternationalorganizationsduetoongoinghostilitiesandseriousaccessconstraints.
Asoftheendof2009,anestimated297,000internallydisplacedpersons(IDPs)werelivinginmakeshiftcamps,informalsettlements,orbeinghostedbyAfghanfamiliestowhichtheyhavecloseties,accordingtotheUNHighCommissionerforRefugees(UNHCR),whichco-chairstheNationalIDPTaskForcetogetherwiththeAfghanMinistryofRefugeesandRepatriationAffairs.MorethanhalfoftheseIDPs–approximately161,000–arechildren,accordingtoUNHCRestimates.Despitetheirlargenumberandspecialneeds,humanitarianagenciesonthegroundconfirmedthattherewasadearthofcomprehensive,disaggregateddataontheirsituationtoinformpolicyandprogrammaticresponses.
AssistancetoIDPs–whetherresidingincamps,settlementsoroutsidethecamps,includinginurbanareasofmajorAfghancities–remainsminimal,uncoordinatedandpartiallyad-hoc.Healthworkersfrequentlydescribechildrensufferingfrompreventablediseaseslikemeasles,dysenteryanddiarrheaasaresultofthelackofvaccina-tions,unhygienicconditionsinIDPsettlementsandthelackofaccesstosafedrinkingwater.63Manyofthesechildrenaredeprivedofaccesstoeducationalopportunitiesinthesettlementsasone-thirdofallsiteslackeducationfacilitiesandvirtuallynoneofferaccesstohighereduca-tion.64DisplacedparentsresidinginKabul’smakeshift
campshavereportedlyevensoldtheirchildrentocriminalandtraffickingcirclestosurviveorprovidefortheirotherchildren.65
Moreover,thestateofdisplacementoftendepriveschildrenofprotectivecommunityorfamilystructuresandexposesthemtoagreaterriskofrecruitmentintoarmedforcesorgroups.Whilemoreevidenceisneeded,availabledataseemstoindicateacorrelationbetweenchildrecruitmentandhighlevelsofdisplacement,accordingtothe2008Secretary-GeneralreportonCACinAfghanistan(seebelow:ChildSoldiers).Infact,thethreatofchildrecruitmenthascausedsomefamiliestofleetheirhomes,accordingtothesamereport.
Inparticular,findingdurablesolutionsforchildrenatrisk,includingunaccompaniedandorphanedchildren,remainsachallenge,accordingtoUNHCR.WhiletheGovernmentofAfghanistan’s2006NationalStrategyforChildrenatRiskfocusedondevelopingcommunityandfamilybasedsupportforvulnerablechildrenandreducingtheemphasisoninstitutionalcare,theorphanagesrunbythegovernmentandtheAfghanRedCrescentSocietyprovidemostlytemporaryshelteranddonotalwaysadmitboysof15 yearsandolder.66Childprotectionagencieshavealsowarnedofthepoorlivingconditionsinsomeorphan-ages.Forexample,asurveyconductedbyAIHRCwith43 childreninAlahuddinOrphanageinKabulfoundmostchildrentobedissatisfiedwiththefacilities,citingpoorfoodquality,lackofsanitationfacilitiesandphysicalandverbalviolence.
RefugeesInthemid-1990s,atthepeakofthedisplacementcrisis,anestimated8millionAfghanrefugeeslivedinneighboringcountries,mainlyinPakistanandIran,representingoneofthelargestrefugeepopulationsworldwide.67Withthearrivalofanewgovernment,internationalforcesandfunding,morethan5.6millionpeopledecidedtoreturn
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totheirhomecountrybetween2002and2009.68Ofthe4.4 millionassistedreturneesfromPakistanandIran,over2 millionwereundertheageof18,accordingtoUNHCR;theagencyfurtherreportsapproximately1.6millionregisteredrefugeeslivinginPakistanandabout1millioninIranasofJanuary2010.69WhileupdateddataonAfghanrefugeechildreninPakistanandIranisnotavailable,UNHCRestimatesabout1.18millionchildrenamongAfghanrefugeesinPakistanand345,000childrenamongAfghanrefugeesinIranbasedonstatisticsfromregistrationexercisesconductedin2007.70
Pakistanisnotasignatorytothe1951RefugeeConventionandits1967Protocol,whichestablishtheinternationallegalstandardsforrefugeeprotection.WhileIranisasignatorytoboththeConventionandtheProtocol,regimesafter1979haverefusedtoabidebytheprovisionsofthe1951Convention.Theprolongedrefugeepresenceandsecurityissuesduetocross-bordermigrationandcrimehaveledtoconcernsthatthecountrieswouldclosetheirbordersandputpressureonAfghanrefugeestoreturnhome,accordingtotheInternationalCrisisGroup.71Since2004/2005,bothPakistanandIranhavetightenedtheirasylumpoliciesandincreasedpressureonAfghanstoleavethecountrybyclosingrefugeecamps,cuttingoffassistanceandinsomeinstancesarrestinganddeportingrefugees.
MostoftheregisteredrefugeesinPakistan(around85 percent)arelivinginthetwoprovincesadjacenttoAfghanistan–NorthWestFrontierandBaluchistan–twoofthemostdestituteprovinces.ThereareseriousprotectionconcernsforrefugeeslivingintheseareasassomearmedgroupshavereportedlyusedthecampsasbasesfortheirmilitaryoperationsinAfghanistan.72
Citingsecurityconcerns,theGovernmentofPakistanhaslimitedtheaccessofaidorganizationsandonlyallowsaidtobeprovidedtorefugeesthroughitsownprogramsdespiteitslimitedexpertiseonprotectionissuesanditsdirectpoliticalinvolvementintheconflict.73
InMarch2010,anewTripartiteAgreementbetweenthegovernmentsofPakistanandAfghanistan,andUNHCRonvoluntaryrepatriationwassigned,whichextendsthestayofregisteredrefugeesthroughDecember31,2012.Between2005andthebeginningof2010,about25Afghanunaccompaniedminors–largelyundocumentedlabormigrants–weredeportedfromPakistan,accordingUNHCR’sstatisticsfrombordermonitoring.
ThesituationforrefugeesinIranalsoremainsprecarious.Since2002,about5,818AfghanunaccompaniedminorshavebeendeportedfromIran,accordingtoUNHCR.Whilethemajorityofthesechilddeporteesareundocumentedlabormigrants,humanrightsorganizationswarnthatchild
deporteesmaybeataheightenedriskofsexualexploitation,physicalabuse,humantraffickingandvariousexploitationsandabusesupontheirreturn,accordingtoAIHRC.74SomedeporteeshaveaccusedtheIranianpoliceofbeatings,illegalandarbitrarydetention,andtheIraniansecurityforcesofinsultsbeforetheirexpulsion.75TheIraniangovernmenthasalsomadeitmoredifficultforAfghanrefugeestostayinthecountrybybanningthemfrom22 provincesaspartofits“no-goarea”policyandgraduallycuttingofftheiraccesstosubsidizededucation,healthcareandfood.76In2009,thegovernmenttooksomestepstoeasetheserestrictivepoliciesbybeginningtogiveworkpermitstoregisteredAfghanrefugeesandallowingallschool-agechildren,includingregisteredandunregisteredrefugees,toenrollingrades1-12inthesamemanner.77However,gapsintheimplementationofthesepoliciesremain,accordingtoUNHCR.
MostregisteredAfghanrefugeesdonotwanttoreturntotheirhomecountryduetothedeterioratingsecuritysituation,thelimitedabsorptioncapacityofcommunitiesinAfghanistanandthelackofsocio-economicopportuni-ties.Withoutland,jobs,accesstobasicservicesandwithongoingsecurityrisks,returneesareatahighriskofreneweddisplacementwithinAfghanistanorforcedre-migrationtoneighboringcountries.78UNHCRalludedtothespecificprotectionconcernsofreturneechildren,includingchildlabor,smugglingandhumantrafficking,andearlyorforcedmarriage.79Moreover,abouthalfofallrefugeesgrewupinanothercountryand80percenthavelivedthereformorethantwodecades,makingitdifficultforthemtoreintegrateupontheirreturntoAfghanistan.80
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan18
Recommendations on Refugees and IDP Children The UN Security Council Working Group on Children and Armed Conflict (SCWG-CAC)shouldrequest
UNHCRand/ortheRepresentativeoftheSecretary-GeneralonthehumanrightsofIDPstoleadastudytodeterminevulnerabilitiesandrisksfordisplacedandrefugeechildrenfromAfghanistan.Thestudy’sfindingswouldbethefirststeptowardsenactingacomprehensiveactionplantofinddurablesolutionsfordisplacedchildrenfromAfghanistan.
The GoAshouldensurethatunaccompaniedandseparatedchildrenreceiveadequateinterimcareuntiltheyarereunitedwiththeirfamilies,placedwithfosterparentsorotherlong-termarrangementsforcarearemade,inaccordancewiththeInter-agencyGuidingPrinciplesonUnaccompaniedandSeparatedChildren.Thegovernmentshouldmonitorthatthestandardsofprotectionandcareprovidedbyprivateandpublicorphanagesaremet.
The Government of Iranshouldcomplywiththe1951RefugeeConventionandits1967Protocol;the Government of Pakistanshouldsignandcomplywiththe1951RefugeeConventionandits1967Protocol.Inparticular,theyshouldproviderefugeechildrenfromAfghanistanwithaccesstoeducation,healthanddocumentationtofacilitateopportunitiesforlocalintegrationorrepatriationandensurethattheirprotectionagainstharassmentordeportationisinlinewithinternationalstandards.
The Governments of Afghanistan, Pakistan and IranshouldworkwithUNHCRtoensurethatchildrencancontinuetheireducationorvocationaltrainingupontheirreturn.
AIHRCshouldcoordinatecloselywiththeindependentHumanRightsCommissionofPakistan(HRCP)toconductjointmonitoringandreportingonhumanrightsandchildrightsviolationsalongtheircommonborderareasandtotakespecificmeasurestopreventthem.
Watchlist on Children and Armed Conflict19
Health
Access to ServicesThedestructionfromthewarandensuingpoliticalandeconomicinstabilityhaveleftAfghanistan’shealthcaresysteminshambles,andnearlyfullydependentonexternalfundingandassistance.Since2002thegovern-menthastakensomeimportantstepsinimprovinghealthcare,whichhaveresultedintheincreaseofhealthfacilitiesfrom400in2002to1,788in2009andasubstantialincreaseintrainedhealthpersonnel,accordingtotheMinistryofPublicHealth.81Withtheexpansionofbasichealthservices,preventablefatalitiesamonginfantsandyoungmothershavemarginallydecreased.However,intensifiedconflict,attacksandintimidationagainsthealthworkers,andlowqualityservices,havecontinuedtokeepinfantandmaternalmortalityratesalarminglyhigh.
Afghanistanisstilltheworstplaceforanewbornintermsofaccesstohealthcareandsurvivalopportunities,accordingtoUNICEFandSavetheChildren.82OneinfourAfghanchildrendonotreachtheirfifthbirthday,partlyduetolackofaccesstoadequatehealthcare.83SavetheChildrenreportsthat15percentofvulnerablepeople,includingchildren,inurbansettingsand30percentofthoseinruralareasdonothaveaccesstoanygovernment,nongovernmentalorganizationorprivatelyrunhealthfacilitiesinAfghanistan.84Newlydevelopednationalhealthcarepoliciestoprovidepeoplewithbasichealthservices(BasicPackagesofHealthServices–BPHS)generallydonotreachpeoplelivinginthesouthernandwesternpartsofthecountry,partlyduetoinsecurity.85Asaresult,childrenhavecontractedordiedofdiseasesthatareeasilypreventableorcontrolledinmostcountriesaroundtheworld,includingrespiratoryinfections,diarrheaandvaccinepreventabledeaths,especiallymeasles,accordingtoWHO.86
Atleast1millionAfghans(15percentofthepopulation)weredeprivedofbasichealthcareservicesduetoattacksonhealthcarefacilitiesandhealthworkersin2008,andinsufficientcoveragebytheBPHSsystem.Thisnumberhas
doubledsince2007,accordingtotheMinistryofPublicHealthandWHO(seeabove:HumanitarianAccess).87Thesituationintheconflict-affectedsouthernregion(Helmand,Kandahar,ZabulandNimroz)isparticularlysevereandcontinuestodegrade.Somehealthfacilitieshavebeenclosed,damagedordestroyedbythearmedoppositionandthedeliberatetargetingofhealthfacilitiesandworkerslimitsaccesstohealthservicesformuchofthepopulationlivingininsecureareas.Manysecurityincidentsinvolvingtheharassment,intimidationandkidnappingofhealthworkersremainunreportedbecauseoffearofretaliation.AsofNovember2008,13southerndistrictshadnofunctionalpublichealthfacilities,potentiallyaffectinghundredsofthousandsofpeople,includingchildren,accordingtotheUN.
Armedgroupshavelargelybeenresponsibleforattackinghealthfacilities,staffmembersandpatients.Forexample,armedoppositiongroupsdestroyedseveralNGO-runclinicsintheeastandabductedstaffbetweenJuly1standSeptember30,2009.88AfghanSecurityForcesandinternationalmilitaryforceshavealsonotalwaysrespectedthespecialprotectionaffordedtomedicalpersonnelandfacilitiesunderinternationallaw.Forexample,inAugust2009,AfghanmilitaryforcesreportedlyoccupiedtwoBasicHealthCentersinHelmandprovince.89TheSwedishCommitteeforAfghanistanalsoaccusedISAFofinvadingitshospitalonSeptember6,2009.90Inordertopreventfurtherincidentsinvolvingtheoccupationofhealthfacilitiesbymilitaryforces,theHealthClustermembers,whocoordinatethehealthresponseamongUN,govern-ment,NGO,academicandprivateactors,havedevelopedacodeofconductforallmilitaryactorsregardingentryintohealthfacilities(seeabove:HumanitarianAccess).Inaddition,theHealthCluster–incoordinationwiththeUN-ledCountryTaskForceontheMonitoringandReportingMechanism(CTFMRM)–establishedamecha-nismformemberstoreportattacksagainsthealthstaffandfacilities(seebelow:UNSecurityCouncilActions).
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan20
Thereisalsoacriticalshortageofhealthcareworkersinconflict-affectedorremoteareas.91Onaverage,onedoctorisresponsiblefortreatingmorethan5,500patients,and80 percentofhealthclinicslackadequateequipment.92Inparticular,thelackoffemalemedicalstaffposesaseriousobstacletoprovidingessentialservicestowomenandchildren.InPaktikaprovince,forexample,thereisnotasinglefemaledoctorandonlyafewfemalenursesandmidwivesintheentireprovince,wheremorethan180,000 womenlive,accordingtoAfghanistan’sCentralStatisticsOffice.93
Withoutaccesstomedicalsuppliesandprofessionalstaff,someAfghanshavereliedoninformalmedicaladvicefromfamilyeldersorboughtmedicinefromlocaldrugsellerssuchasopium,withharmfulconsequences.94Inparticular,thesmallnumberoffemalehealthworkersdiscouragesgirlsandwomenfromseekingmedicalassistance,espe-ciallyforreproductivehealthconcerns,accordingtothesamereport.Currently,lessthanone-thirdofhealthfacilitieshaveatleastonefemalehealthworker,accordingtotheSecretary-General’sreportonWomen,PeaceandSecurity,September16,2009(S/2009/465,para.16).
Maternal Death and Reproductive HealthInspiteofimprovements,Afghanistancontinuestohaveoneofthehighestmaternalmortalityratesworldwidewith1,800/100,000livebirths.95OnemotherdieseveryhalfhourinAfghanistanbecauseofbirth-relatedproblems,accordingtoUNICEF.96Theinfantmortalityratestandsat165forevery1,000livebirths.97Theprevalenceofearlymarriagehasresultedingirlsgivingbirthatayoungagewhentheyarenotyetphysicallymature,whichcarriesserioushealthrisksforthemotherandinfant.Forexample,anadolescentgirlistwotofivetimesmorelikelytodiefrompregnancy-relatedcomplicationsthana20-year-oldwoman,accordingtoSavetheChildren.98
Inaddition,traditionalgendernormspreventwomenandgirlsfromlearningaboutreproductivehealth,visitingmaledoctorsoraccessinghealthfacilitieswithoutamalepersonaccompanyingthem,accordingtoUNICEF.Theagencyfurtherreportsthatthehighmaternalmortalityrateisduetoverylimitedaccesstocomprehensiveemergencyobstetriccareforwomenlivinginruralareas,pooraware-nessaboutsafedeliverypracticesandthescarcityofprofessionalhealthworkers,particularlyfemales.99Morethan70percentofbirthstakeplaceathomewithoutanymedicalsupportandany“emergencyplan”inplace.100Whilethenumberofmidwiveshasincreasedsubstantiallyfrom400in2001toapproximately2,500in2008,morethan4,500moremidwivesarerequiredtomeetcurrentneeds.101
Theenrollmentofstudentsforcommunitymidwiferyschoolsishamperedbythelowliteracyratesamongfemalesintheruralandremoteareasandevenmorebythethreatsandintimidationoftheirfamiliesbythearmedoppositiongroups,accordingtoWHO.Someofitsimplementingpartnersoperatingin“securitychal-lengingdistricts”reporteddropoutratesofbetween30 –40percent.Progressinimprovingtheaccesstoskilledbirthattendantsislikelytobeslow,especiallyinareaswherethiswouldbemostneeded,namelyinrural,remoteandinsecurelocations.
Infectious DiseasesUntreatedcommunicablediseasesthreatenindividualsandcommunitiesinAfghanistan.OfthecasesreportedtotheDiseaseEarlyWarningSystemadministeredbytheMinistryofPublicHealth,morethan60percentposedthethreatofdevelopingintoamajorepidemic,accordingtoWHO.Thissituationisespeciallydireininsecureareaswheregovernmentandhumanitarianagencyoperationsarerestrictedduetoconflict. SourcesatWHOreportthat50percentofoutbreaksaretakingplaceininsecureareas,whereevenaccesstoemergencyhealthcareisimpossible.Forexample,duringthecholeraoutbreakof2009,afatalityrateof13percentwasrecordedinunstablepartsofthesouthernregion.Theseuntreated,oftenseriousdiseasescontributetoAfghanistan’sunder-fivemortalityrateof25 percent,whichisoneofthehighestintheworld.102
NationwidecampaignsbytheAfghangovernmentwithUNsupporttoeradicatepoliohaveresultedinthenear-eradicationofthepandemicinthelasttwotothreeyearswithinthecountry,accordingtoWHO.However,insecurityhaspreventedagenciesfromaccessing110,000childrenintheconflict-affectedsouthernprovinces,where20ofthe23caseswereregisteredin2009,accordingtoaWHO2009reportonthepolioeradicationcampaign.HealthagenciesconsidertheAfghanistan-Pakistanregionasaprimaryriskareaforpolioasitinvolvestwoofthefourremainingcountrieswherepoliostillremainsendemicduetoinsecu-rityanddisplacement,accordingtoWHO.103Whileinsecurityhaspreventedaccesstocertainareas,partiestoconflicthavenotdirectlyobstructedvaccinationeffortsinareasundertheirinfluenceorcontrol,andtheTalibanpubliclydeclaredthatitwouldnotopposeimmunizationcam-paigns.104Thesuccessfulengagementofhumanitarianagencieswithnon-statearmedgroupsinnegotiatingaccessforimmunizationcampaignshasallowedWHOanditspartnerstoinclude30,000childrenfromdifficult-to-reachareas,andtoestablishadditionalDiseasesEarlyWarningSystemsfortheidentificationandresponsetooutbreaks.105
Watchlist on Children and Armed Conflict21
MalnutritionTheHumanitarianActionAppealwarnedofseveremalnutritionamongunder-fivechildren,andinpregnantandlactatingwomenin2008duetodrought,risingfoodpricesandinsecurity.Infact,40percentofchildrenunderfiveinAfghanistanareunderweightand54percentdisplayseveresignsofstuntingaccordingtoUNICEF,State of the World’s Children 2008.Accordingtothesamesurvey,24 percentoflactatingwomenaremalnourishedandover19 percentofpregnantwomenhavepoornutritionalstatus.Therearestrongindicationsthatyoungmothersandchildrenregularlydieofmalnutrition-relateddiseases,accordingtoUNICEFandtheAfghanMinistryofPublicHealth.106UNinitiativesfocusonfeedingchildrenunderfiveandpregnantandbreastfeedingwomenthroughfeedingcentersandofferdailylunchestostudentstoencourageparentstosendtheirchildrentoschool.107
Water and SanitationInadequateaccesstocleanwaterandsanitationfurtherexacerbatesthehealthsituationforchildreninAfghanistan.Lessthanone-quarterofallAfghanscurrentlyhaveaccesstosafewatersources,andlessthanone-thirdofthepopulationisabletouseadequatesanitationfacilities.108Threeoutoffourpublicschoolsdonothavesafesanitationfacilitiesforstudentsandapproximately2millionstudentsattendingtheseschoolsdonothaveaccesstosafedrinkingwater,accordingtoUNICEF.109
Basichygienicmeasuressuchaswashinghandswithsoapaftervisitingthetoiletorbeforeeatingcanreducetheriskofachilddyingofdiarrhealdiseasesbyhalf,accordingtoUNICEF.UNICEFfurtheraffirmsthatespeciallyoldergirlsareextremelyunlikelytoattendschoolsthatlackgender-separatedlatrines.ImprovingaccesstowaterandsanitationatschoolscanthuscontributetobothincreasingschoolattendanceandreducingchildmortalityinAfghanistan.
Drug AddictionThelargesupplyofopiumtogetherwithpoverty,unemployment,mentalillness,lackofawarenessandwidespreaddespairhascreatedanincreasingdemandfordrugsinAfghanistan’swar-tornsociety.ThemostrecentUNOfficeonDrugsandCrimeDrug Use Survey 2005estimatedthatnearly1millionAfghans,including60,000 childrenundertheageof15,wereaddictedtodrugs.Childrenweremostlyreportedasusinginhalanttranquilizers.Figuresondrugabuseamongyoutharebelievedtobemuchhighertodayandencompassawiderrangeofsubstancesduetoavailabilityandcontinuingstresses,accordingtoUNODC.Mostofthewomenusing
opiumareofreproductiveage,makingbabiestheymayhavemoresusceptibletowithdrawalsyndromes,prematu-rity,accidentalpoisoningandotherhealthissues.110
Morerecently,afewhealthagencieshavereportedentirefamiliesinAfghanistanbecomingaddictedtodrugs.111AnAIHRCstudyfoundthat15percentofdruguserssurveyedgavetheirchildrendrugstokeepthemquietwhiletheywork.112Theuseofdrugshasparticularlyharmfulconse-quencesforchildrenbecausetheyaremoreeasilyaddictedandsufferpermanentmentalandphysicaldamage.113Intheirdrivetoacquiremoredrugs,somechildrenjoincriminalnetworksorarmedgroups,accordingtoUNAMA’s2007report.HealthexpertsalsowarnoftheimpendingrisksrelatingtodiseasesthatcanbetransmittedbysharingneedlessuchasHIV/AIDSandhepatitisC(seebelow:HIV/AIDS).
OnlyoneoutoffourreporteddrugaddictsinAfghanistanreceivesthenecessarytreatmentandrehabilitationservices,accordingtoUNODC.Patientsexpectingtreatmentoftenhavetowaitmonthsforoneofthe100bedsreservedfortreatment.114Thefearofbeingstigmatizedalsokeepsmanywomenandchildrenfromseekinginformationandservices.
Psycho-Social DisordersTraumaticeventsexperiencedorwitnessedduringtheconflictcontinuetohauntmanychildren,makingitdifficultforthemtoreadjusttonormallife.Arecentsurveyfoundthat22percentof1,011childrenbetweentheagesof11and16yearsattendinggovernment-operatedschoolsinKabul,BamiyanandMazar-i-Sharifexhibitedsignsofpsychiatricdisorder;girlsweretwo-and-a-halftimesmorelikelytohavedisordersthanboys.115
However,thereislimitedpsycho-socialtraumasupportprovidedinthecountry,accordingtoHandicapInternational.Standardhealthresponsesforvictimsofviolence–evenrapevictims–focusonphysicalcarewithlittleattentionpaidtothepatient’smentalwell-being.Theprofessionofcounselingdoesnotevenexistinpublichealthservices.Somechildprotectioninitiativesengageconflict-affectedchildreninactivitiestopromotecreativityandplayasanalternativetomoretraditionalpsycho-socialinterventions,includingskateboardingandstagingachildren’scircus.Whilesuchprogramsmaybenefitafew,moresystematicinterventionsareneededforchildrentohelpthemdealwiththeirwarexperiences.
Health
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan22
Recommendations on Health (Compare, Recommendations on Humanitarian Access) Donorsshouldsubstantiallyincreasehealthfundingtoreducechildmortalityandmaternalmortalityand
addressexistingandemerginghealthneedsincludingpsycho-socialcare.Healthwasthe“worst-funded”clusterin2009withonly2percentofcoveredfunding.
The GoAshouldexpandhealthcareservicesonanequitableandsustainablebasisofferingacontinuumofcarefromlocalhealthcareworkerstohospitalsthatreachgirlsandboysinbothruralandurbanareas(compare,HIV/AIDS).
The GoAshoulddeviseastrategytoimprovematernalandchildhealththatincludesincreasingthenumberoffemalehealthworkersinruralareas.
The GoAshouldsystematicallyintegratepsycho-socialsupportintothestandardhealthresponseforvictimsofviolence,withaspecialfocusonGBVsurvivors,andensurethattheseinitiativesareadaptedaccordingtothepatient’sage.
Donorsshouldcontinuetosupportyouthinformationcommunitycenterswherechildrenandyouthlearnaboutreproductivehealthissues,HIV/AIDSanddrug-relatedproblemsinasafesetting.Thesecentersshouldalsobeexpandedtoruralareas.
The GoA,withthesupportoftheUN,shouldconductapublicawarenesscampaigntowarnoftheharmfulconsequencesofdrugabuseduringpregnancyfortheshortandlong-termhealthofthemotherandthebaby.
Watchlist on Children and Armed Conflict23
HIV/AIDS
The Spread of HIV/AIDSOfficialnumbersonHIVprevalencearelikelytounderesti-matetheseverityofthesituationduetostigmatizationandthelowlevelsofsurveillanceandtestinginthecountry.Afghanistan’sNationalAidsControlProgramregistered559 cases,includingchildren,asofNovember2009.116UNAIDSandWHOputthenumberofreportedcasesmuchhigherat1,000to2,000.117
Despitelowreportedprevalencerates,expertswarnthatarmedconflictexacerbatesriskfactorscontributingtothespreadofHIV/AIDSinAfghanistan.Inparticular,criminalnetworksarelikelytoexploitthevulnerablesituationoforphansandstreetchildren,forcingthemintoprostitutionorintroducingthemtodrugs.Forinstance,streetchildrenareregularlyforcedtoearnalivingassexworkerswithoutprotectingthemselvesfromsexuallytransmittedinfections,accordingtoUNICEF.OutofschoolyouthrarelyreceivevitaleducationmessagesregardingthepreventionofHIV/AIDS,accordingtoUNODC.Inadequatehealthfacilitiesduringbirthhavealsointensifiedtheriskofmothertochildtransmission.118
Cross-bordermigrationisanotherfactorinthespreadoftheHIVepidemic.Forexample,thethousandsofyoungmaleAfghanswhoworkillegallyinIranvisitsexworkersanduseintravenousdrugswithoutanyprotection,accordingtotheIrangovernmentandUNHCR.TherearecurrentlynoinitiativestoraiseawarenessaboutHIVamongAfghanmigrantsinIran,accordingtohealthofficialsinKabulandHerat.119
Treatment and CareDespiterepeatedwarningsoftheparticularrisksforchildren,thenationalschoolcurriculumhasnotincorpo-ratedclassesonHIV/AIDS.About59percentofalmost20,000highschoolstudentsbetweentheagesof15and24inKabulbelievedthatpeoplelivingwithHIVmustbeisolatedfromtherestofthecommunity,andmanywouldbarthemfromschoolorwork.120LackofknowledgeofHIVandfearsofsocialstigmatizationkeepmanyAfghansfromaccessingexistingcentersofferingtreatmentandcare.121Overall,mostservicesareconfinedtourbancenterswhereasmallnumberofmedicalfacilitiesofferfreecheckups,anonymouscounselingservicesoraffordablemedicineforHIV/AIDS.
Recommendations on HIV/AIDS The GoAshouldexpandprevention,treatmentandcareofHIV/AIDStoreachgirlsandboysinbothruraland
urbanareas.
The humanitarian communityshoulddevelopeasy-to-use,culturallysensitiveinformationonHIV/AIDSinlocallanguagesandwidelydistributethemthroughthemedia,schoolsandcommunitiesinAfghanistanandneighboringcountries.Theyshouldalsodeviseregionalstrategiesaimedatraisingawarenessamongchildrenwhomigrateoraretraffickedtoneighboringcountries.
DonorsshouldsupportnationalinitiativestointroducethepreventionofmothertochildtransmissionandpediatricHIVtreatmentservicesintoAfghanistan’sgeneralhealthcare.
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan24
Education
School Enrollment and AttendanceDuringtheirrule,theTalibandeniedmillionsofchildrentherighttoeducationandbannedgirlsfromattendingschool.ThereturnofgirlsandboystoschoolbecameapolicypriorityofsubsequentreconstructioneffortsinAfghanistanandabenchmarkforthepeace-buildingprocessinAfghanistan.AsofFebruary2010,7millionchildrenwereattendingschool,ofwhichapproximatelyone-thirdweregirls.122
Yet,morethan5millionschool-agechildrencontinuetomissoutoneducationopportunities,accordingtoaidagenciesandtheMinistryofEducation.123Fewofthelong-termIDPslivingincampsettingshaveaccesstoprimaryorsecondaryeducation,accordingtoAIHRC.Manystudentsareforcedtodropoutofprimaryschoolandevenfewerareabletomoveontohighereducationduetoinsecurity,povertyorearlymarriage.124Dropoutratesaredisproportionallyhigherforgirlsasparentsaremorerestrictivewiththeirdaughters.Atthelowersec-ondarylevel,only27percentofstudentsweregirls.125
Therearehardlyanyoptionsforchildren,especiallygirls,whograduatefromprimaryschooltoproceedtosecondaryeducation.Currently,only11percentofboysand5 percentofgirlsenrolledinprimaryschoolcontinueontograde12.126Asattentionandfundingisfocusedonprimaryeducation,therearefewsecondaryschoolsandevenlessopportunitytoattenduniversity.Mostoftheseschoolsarefarapartfromeachotherandrarelyprovideforgendersegregationmakingthemlargelyinaccessibletochildren,especiallygirls.
Monitoring and Reporting on AttacksTheMinistryofEducation,UNICEF,UNAMA,theWorldFoodProgrammeandtheAfghanistanNGOSafetyOffice(ANSO)regularlygatherinformationonattacksagainstschools.However,thedatabaseformatsandnumbersofUNICEFandtheMinistryofEducationonschoolattacksdonotmatch,makingitdifficulttounderstandthephenomenon,
asnotedbyCAREInternationalinKnowledge on Fire: Attacks on Education in Afghanistan: Risks and Measures for Successful Mitigation,September2009.Thestudyalsoidentifiedcasesofunderreporting,partialreportingormisreportingaswellasdoublecountingofcasesintheUNICEFandMinistryofEducationdatabases.AspartoftheUN-ledMonitoringandReportingMechanism,theCountryTaskForcesetupaninformationmanagementsystemin2008/2009tocleanexistingdatabasesofinformationaboutattacksagainstschoolstoensurethatrecordeddataisconsistentandthatdouble-countingisavoided.
Whilevariousorganizationsmonitorattacksagainstschools,noneofthemsystematicallycollectcriticalinformationthatcouldpreventattacks,includingearlywarningsignssuchas“nightletters,”whicharesecretlysentoutorpostedinpublicplacesatnighttointimidateparents,teachersandstudents.Noneofthedatabasesrecordsthesourceoffundingfortheattackedschools,whetheritisastan-dardizedschoolbuildingorcommunitybased,andwhetherthereisaPRTrelationshipwiththeschool.Allofthisinformationcouldprovidesignificantinsightsonwhyschoolsareattacked.Forexample,AfghancommunitiesperceiveschoolsbuiltbyPRTsorthathavePRTinvolvementtobeatgreaterriskofattack,accordingtothereport.Similarly,studiesshowthatschoolsaremoreprotectedwhencommunitiesareinvolvedinthebuildingandopeningoftheschoolandincurriculumdevelopment.127Thedatabasesalsodonottrackinformationregardingotherconflict-relatedfactorsthatinhibitschoolattendancesuchasthepresenceoflandminesintheschool’svicinity.Nordotheycapturethewiderimpactthatschoolattacksmayhaveonparents’decisionstosendtheirchildrentoschool.
Attacks against Schools, School Children and TeachersEvenwiththelimitedmonitoringandreportingsystemcurrentlyinplace,itisclearthatattacksonschoolsbyarmedoppositiongroupsarewidespread.Armed
Watchlist on Children and Armed Conflict25
oppositiongroupshavedamagedanddestroyedschools,brutallykilledstudentsandtheirteachersandthreatenedanybodyseenassupportiveofAfghanistan’seducationsystem.Criminalgangsareresponsibleforsomeoftheseattacks,attimesactingasproxiestoarmedgroups.In2009,theUNCountryTaskForcedocumented610incidentsaffectingeducationcomparedto348recordedincidentsin2008.Themajorityofattacksarerelatedtotheburningofschoolbuildingsorinventory,explosionsclosetoorinschoolbuildingsanddirectattacksagainststudentsandeducationpersonnel,accordingtotheUNICEFschoolsecuritydatabase.Armedgroupshavealsoused“nightletters”tothreatenfamiliesanddeterthemfromsendingtheirchildrentogovernment-runschools.128
WhileschoolattackshaveoccurredthroughoutAfghanistan,thetypeofattacks–whetherarson,explosivesorothers–hasvaried,dependingontheprovinceandthelocationoftheschool.Forexample,schoolsbuiltnearhighwaysclosetothefrontlinesandinternationalbordersaremorelikelytofaceattacks.Inaddition,visitsofinternationalmilitaryforcestoschoolsortheirdirectassistancetoeducationprogramsthroughthePRTsislikelytoincreasetheriskofattacksbyattractinguntowardattentionbyanti-governmentelements.Forexample,followingavisitbyaPRTtoanallgirls’school,aviolentdemonstrationtookplacewhichincludedattacksonthedistrictjudgeandthedistrictmanager’shouse.ThisresponsewastriggeredwhentheMullahclaimedthatthegirlsdancedtomusicandwerefilmedandphotographedbythePRT.129AlthoughsomeofthethreatsorattacksagainstschoolsseemlinkedtoPRTsupport,morestatisticalevidenceisneededtoverifywhetherthereisindeedacorrelation.
Girlsfacesignificantlyhigherrisksofbeingattackedthanboys.Whileonly19percentofallschoolsinthecountryaredesignatedgirls’schools,attacksagainstgirls’schoolsaccountfor40percentofallattacks.130Forexample,inMay2009,anarmedgroupreportedlypoisoned90girlsbetweentheagesof8and12yearsoldusinggasinMahmudRaqi,thecapitalofKapisaprovince,leadingtoseverenauseaandinatleastfivecases,short-termcomas.131Inanothercase,inNovember2008,TalibanmilitantsreportedlythrewacidintothefacesofmorethanadozengirlsandseveraloftheirteachersenroutetoschoolinKandahar,leavingsomeseverelydisfigured,accordingtothe2008Secretary-General’sannualreportonchildrenandarmedconflict(A/63/785/S/2008/158andCorr.1para14).Themilitantswerereportedlypaid100,000Pakistanirupeesforeachgirltheyburned.Todate,theperpetratorsofthecrimehavenotbeenconvicted.132
Therehavealsobeenincidentswhereteachersandstudentshavebeencaughtinthecross-fireascheckpoints,policepostsormilitarycampswereestablishedintheimmediatevicinityofschools.Forexample,onMarch15,2009,anIEDexplodedinfrontofaschoolandclosetoamilitarybaseinKabul,injuringamongothersaschoolteacheranda12-year-oldstudent,anddestroyingsomeoftheschool’swindows,accordingtotheMinistryofEducation.133
Protecting Schools from AttacksAfghanlocalcommunitiesplayacriticalroleinprotectingschoolsagainstviolence,accordingtoCARE.Incontrasttothegovernmentorthepolice,whichmayattractfurtherattacks,communitymembersdissociatethemselvesfrompoliticalagendas.Inmanycasescommunitymembersknowthearmedgroupinvolvedandareabletoestablishadialoguewiththem,accordingtothestudy.Whilecommu-nitieshavedevelopedstrategiestocommunicatewitharmedgroups,theyfacemoredifficultiesindealingwithcriminalgangsastheyrarelyknowtheiridentityandaremoreafraidofcontactingthem.Inthesecases,thehiringofguardsandpatrolsmaybeamoreappropriatestrategy,especiallyduringthenightandintheearlymonthsoftheschoolyearwhenmostoftheattacksoccur.Community-basedschoolsalsoappearlesslikelytobethetargetsofattacksastheyarelessvisible(usuallyrunfromhomes)andnotseenassymbolsofthegovernmentlikethePRT-affiliatedschools.Approximately25percentofschoolsinAfghanistanarecommunity-based.134
TheMinistryofEducationhasalsoengagedwitharmedgroupsdirectlyorthroughlocaleldersandreligiousscholarstoobtainassurancesforthesafepassageofstudentsinthesouthernprovincesofKandahar,HelmandandUruzgan,accordingtotheMinistryofEducation.135Thegovernmentisalsoplanningtoopenupitsownmadrassasorreligiousschools,whichwouldintegratebasicIslamiceducationintothebasicschoolcurriculum,todiscourageparentsfromsendingtheirchildrentomadrassasinPakistan.SomeofthemadrassasinPakistanpromoteIslamicradicalismanddemandpersonalsacrificeforjihad,includingsuicide.136
Conflict-Related Barriers to EducationAttacksagainstschoolsandrelatedinsecurityresultedintheclosureofanestimated700schoolsin2008and670schoolsatthebeginningof2009,accordingtoUNICEF.137Inthesouthernprovinces,65to81percentofschoolswereforcedtocloseduetoinsecurity,accordingtoCARE.
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan26
Moreover,violenceagainsttheeducationsystemhasevokedfearamongparentsofsendingtheirchildrentoschool,underminingthemassiveeffortsthathavebeenmadetoencouragestudentenrollment;thisviolenceparticularlyaffectstheschoolattendanceofgirls.138
Further,thedestructionanddamagetoschoolbuildingsandinventoryhasmadeitextremelydifficulttoensurequalityeducationforchildrenattendingschool.Halfofpublicschoolsoperatewithoutabuildingandclassesareheldintentsoroutside,accordingtotheMinistryofEducation.Inaddition,schoolfacilitiesarerarelyconstructedwithaviewtothespecialneedsofchildrenwithmentalorphysicaldisabilities,includingramps,widergatesandsensitizationprograms.139
ThereisalsoalackofqualifiedteachersinAfghanistantosupportanincreasingstudentbody.Approximately80percentofteachershadnotcompletedtheirhigh-schoolorpost-secondaryeducationasofFebruary2009,accordingtotheMinistryofEducation.140Thisshortageappearstobelessaresultofthedirectthreatsagainstthembutratherrelatedtotheemigrationofteachersduringthewar,lowsalaries,complicatedaccreditationproceduresandgeneralinsecurity.OutofthepeopleinterviewedforCARE’ssurvey,only3percentbelievedthatmaleteachersquittheirjobfollowinganincidentand7percentbelievedthesameforfemaleteachers.Yet,giventhehighnumberofattacks,theaggregatelossinteachersissignificant.Thisresultsinstudentsonlyreceivingaminimaltwo-and-a-halfhoursofeducationperday,accordingtoACBAR.141DuetothelownumberofAfghangirlsfinishingtheireducation,schoolsarenowparticularlystrugglingtofindfemaleteachers,whichinturnnegativelyaffectsgirls’schoolattendance.142InBadakhshan,forexample,therecruitmentofasmallnumberofqualifiedfemaleteachersincreasedthenumberofgirlsattendingaprimaryschoolfrom70toover1,000 studentsin2009.143
Thepresentarmedconflicthasalsoexacerbatedeconomicstrainsonfamiliessothatmanyarenotabletoaffordeducationfortheirchildren.AlthougheducationinAfghanistaniscompulsoryandfreefromgradesonethroughnine,andfreeuptoundergraduatelevelofuniversity,someparentsarenotabletoaffordschoolsuppliesortransport,orneedtheirchildtoworkathomeforthefamily’ssurvival(seebelow:ChildLabor).The2007-08NationalRiskandVulnerabilityAssessmentconductedbytheMinistryofRuralRehabilitationandDevelopmentandtheCentralStatisticsOrganizationconfirmedthatworkingchildrenarelesslikelytoattendschoolthannon-workingchildren.144Atthesametime,householdsaremorelikelytosendtheirchildrentoschooliftheybelievetheirchildrenwillreceiveaquality
education.145Programstoimproveschoolproximityarealsobelievedtohaveapositiveeffectonschoolattendanceasmanystudentsareunabletopaythetransportcostsorfearpotentialattacksontheirwaytoschool.146
Theconflicthasalsoexacerbatedviolencelevelsatschool,bothbetweenteachersandstudentsandamongchildren,accordingtoSavetheChildren.Physicalandhumiliatingpunishmenthasbecomeaseeminglyaccepteddisciplinarymethodasschooldisciplineorguardscommittees,comprisedofteachersandstudents,areauthorizedtousephysicalpunishmentonstudents.Halfofallinterviewedteachersbelievethattheyhavearighttobeatchildren(commonlywithastick),accordingtotheSavetheChildrenreport.Thereportfurtherhighlightstheparticularprotec-tionneedsofboyswho,inseveralreportedinstances,wererapedbymaleteachersandsubjectedtosexualharassmentbyolderboys.Manyofthestudentsowngunsandknives;childrenfrequentlycommitviolenceagainstotherchildren.147
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Recommendations on Education Armed opposition groupsshouldimmediatelyabstainfromallattacksorthreatsofattackagainstschools,
teachers,education,educationstaff,studentsandparents.
The UN Security Councilshouldrequestthatsecurityforcesandarmedgroupsvacateschoolsandrefrainfromenteringeducationalfacilities,andencouragenationalandinternationalforcestoremoveallcheckpostslocatedinthevicinityofschools.
The CTFMRMshouldmonitortheimpactofattacksandcapturecriticalinformationthatcouldpreventattacks,includingearlywarningsignssuchas“nightletters,”sourcesoffundingforschoolsandeducationrelatedprojectsandthepresenceofsecurityforces.Quarterlyreportsfromtheirevaluationsshouldbereleasedtotracktrendsinattacksagainstschoolsandinformevidence-basedadvocacy.
The GoAshouldinvestigateallincidentsaffectingschools,teachers,staff,studentsandparentsandprosecutethosefoundguiltyinaccordancewithnationalandinternationallaw.
The GoA,withsupportfrominternationaldonors,shouldencouragegirlstoattendschoolbyensuringthatschoolsareaccessible,trainingandhiringmorefemaleteachers,andbybuildinggender-separatedschoollatrines.
The GoAshouldcontinueitseffortstoincreaseschoolattendanceattheprimarylevelandmaketheprovisionofsecondaryeducationalong-termpriority.
The GoAshouldconductanationalcampaigntoraiseawarenessamongteachersandstudentsonviolenceagainstchildreninschoolandholdthoseresponsibleforabusesaccountable.Thepoliceshouldactivelyinvestigatehowstudentsobtaingunsandotherweaponstoinformpolicyresponses.
Donorsshouldmakemeaningfulcommunityparticipationaprerequisiteforsupportingeducationprojectsinordertoreducesecurityrisksandincreaselocalownershipandsustainability.
Education
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Abduction
TherearefewdocumentedcasesofchildabductionduetoconflictinAfghanistanwhichseemforthemostpartconnectedtotraffickingbycriminalnetworks(seebelow:Trafficking).148However,theUN-ledCountryTaskForceontheMRMhasreceivedconfirmedinformationofchildrenabductedortransferredtoPakistanwheretheyreceivedmilitarytraining,accordingtoaprotectionworker.Whilethedocumentedincidentsareveryfew,theyraiseconcernsabouttheextentofthephenomenagiventhelackoftheaccessoftheTaskForcetotheareawherethechildrenwereheldandalsothelackoffollow-upofcaseswherechildrenhavedisappeared.
Otherreportsalsoindicatetheriskofchildrenbeingabductedbyarmedelements.OnOctober26,2009,unknownarmedmenreportedlyabducted13boysbetweentheagesof8and13yearswhilethechildrenwerecollectingfirewoodinHaskaMeenaDistrict,NangarharProvince,neartheAfghanistan-Pakistanborder,accordingtoPajhwokAfghanNews(PAN),Afghanistan’sleadingindependentnewsagency.Whilethreechildrenreturnedtotheirfamiliesaweekaftertheircapture,theremainingoneswerebroughttoPakistan’sDogarareaintheTirahValleybutescapedduringaerialbombardmentsonNovember16,2009.ThePakistanTalibandeniedinvolvementintheabductionbutoneofthechildren’srelativesclaimedthatthearmedmenletthePakistanTalibanaskthechildrenabouttheirfamily’srelationtotheAfghanSecurityForces,accordingtoPAN.149
Recommendations on Abduction (Please see relevant recommendations in chapters on Trafficking and Child Soldiers)
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Gender-Based Violence
Prevalence of Gender-Based ViolenceFearofstigmatization,exclusionandreprisalspreventsAfghansurvivorsofgender-basedviolence(GBV)fromspeakingoutandthusconcealstheextentofthisviolenceinthecountry.InAfghansociety,sexualactscommittedoutsidemarriagearewidelybelievedto“dishonor”familiesandcommunities.Inorderto“save”theirhonor,somefamilieshavereportedlyrejectedorevenkilledthechildorwomanwhowasraped.Thesocialpressureputonthesurvivorandthefamilytohidetheincidenthasalsoresultedinanumberofforcedabortions.150
Asaresultofthesilencesurroundingtheissue,therearefewpubliclyreportedcasesandnocomprehensiveorofficialdataavailableonrapeandGBVinAfghanistan.However,availableinformationindicatesthatrapeisa“widespreadphenomenon”thataffectswomenandchildrenthroughoutthecountry.151TheUNSpecialRepresentativeonChildrenandArmedConflictandothershaverepeatedlybroughtattentiontothesexualabuseofboys,apracticewhichAfghansrefertoasbacha bazior“boyplay.”DatagatheredbyAIHRCfrom2003to2010suggestedthatboysmayevenbeatahigherriskofsexualabusethangirls.152
Children,particularlygirls,arealsoregularlyforcedintomarriageatanearlyage.AccordingtoAfghanlaw,thelegalageofmarriageforboysis18whileitis16forgirls.153Theselegalprovisionsrarelyreflectcurrentpracticeinruralcommunitieswherethevastmajorityofgirlsaremarriedwhentheyareyoungerthan16yearsoldandwithouttheirconsent,oftenforeconomicreasonsorconflictresolution(“bloodmoney”).SavetheChildrenestimatedthat48 percentofmarriagesinvolveboysandgirlsundertheageof18.154Eventhoughcivillawprohibitsforcedandchildmarriage,therearenoknowncasesofparentsbeingprosecutedforchildmarriagetodate,accordingtoAIHRC.155Childrenmarriedatthisearlyagemayfaceseriouspsycho-socialandhealthproblemsandaremorelikelytodropoutofschoolorbecomevictimsofdomesticabuse.156Forexample,one-thirdofmarriedgirlsbetween
10and14 yearsoldreportedsexualviolence,twicethenumberoftheagegroupoffemales15yearsandolder,accordingtoGlobalRights.157
TheMinistryofWomen’sAffairs,withsupportfromtheUNDevelopmentFundforWomen(UNIFEM),hasdevelopedadatabaseofcasesofviolenceagainstwomen.Thedatabaseincludesonlyviolationsagainstgirlsandwomendespitethereportsofabusesagainstboys.ThedatathatisincludedisbasedoninformationprovidedbytheDepartmentofWomen’sAffairsattheprovinciallevelandbytheMinistryofWomen’sAffairsatthenationallevel.Incontrast,reportsfromindependentgroupsorfromtheMinistryofPublicHealtharenotincluded.
Silence and ImpunityActsofsexualviolencearereportedlycommittedbyarmedgroupsorcriminalgangsaswellasfamilymembers,guardiansorcaretakers.Thisincludesstaffofprisons,juvenilerehabilitationcenters,policestationsandorphanages,accordingtoUNAMA/OfficeoftheHighCommissionerforHumanRights(OHCHR).158However,fewifanyperpetratorsofsexualviolenceareeverbroughttojustice.AIHRCestimatesthatonlyoneoutoffourabusersaredetainedbasedonvictims’accounts.159Policeofficersoftenignorecomplaintsorrefusetoregistercasesforfearofretaliationorbecausetheyreceivedbribes.Forexample,threepoliceofficerswerepaidforassistingtheescapeofamanchargedwiththerapeofa7-year-oldboyinthenortherncityofMazar-i-Sharif.160Thepolicealsodonotguaranteetheprotectionofsurvivorsandwitnesses,accordingtoUNAMA/OHCHR.WomenandchildrenreportingonGBVcaseshaveattimesreportedlybeenputinto“protective”custody,puttingthematriskoffurtherviolations,includingrape,whileinprison.
Afghanpenallawfailstocriminalizerapeagainstwomenandminors.Intheabsenceofspecificlawsonrape,mostjudgesandlawenforcementagenciesresorttotheconceptofzinawhendealingwithrapecases,whichiscoveredunderChapter8ofthePenalCode.However,zina
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focusesonadultery,pederastyandviolationof“honor”butdoesnotadequatelydefinecoerciontodifferentiatethevictimandtheperpetratorofrape.Asaresult,GBVsurvivors–eveniftheywerechildren–havebeenerrone-ouslyprosecutedforadultery.Thevaguedefinitionofzinahasledcourtstoprosecutechildren,particularlygirls,forrunningawayfromtheirhomes,eveniftheywereescapingdomesticviolence.Authoritiesarealsoregularlyaccusedofdiscardingaccusationsofrape,especiallyifchildrenfilethecomplaint.
Inordertostrengthenthelegalframework,theEliminationofViolenceagainstWomenActwaspassedbypresidentialdecreeinJuly2009.161Whilethelawincludesspecificprovisionsonrapeandpunishesanybodyinvolvedinchildorforcedmarriagewithupto10yearsimprisonment,itstillhastoexplicitlycriminalizerapeandtoincludeadefinitionofrapethatisinaccordancewithinternationalstandards.162Moreover,concernsremainoveritsimple-mentationgiventheambivalenceofthelegalprovisions,widespreadcorruption,weaklawenforcementmechanisms,impunityandapropensityofjudgestoapplytraditionalorSharialawthatconflictswithconstitutionallaw,accordingtoAIHRC.Womenandgirlsalsofacedifficultiesinaccessingcourtsandlegalbodies,particularlyintheprovinces.
InsomecasesofrapeagainstchildreninvolvingAfghanSecurityForces,judicialauthoritieshavesentencedperpetratorsto10or15yearsimprisonment,accordingtothe2008Secretary-General’sreportonCACinAfghanistan.However,localpowerstructuresregularlyaffecttheoutcomeofthelegalprocessaspowerbrokersusetheirinfluencetoshieldthemselvesfromprosecution.In39 percentofcasesinthenorthernregionanalyzedbyUNAMA’sHumanRightsUnit,perpetratorsenjoyeddirectlinkstolocalpowerbrokers.163Forexample,inMay2009,alocalcommanderwhowasaccusedofrapingawomanandherdaughterconvenedajirgaortraditionalassemblyoflocalleaders,whorequestedthatthesurvivorsandtheirfamilyleavethedistrictinsteadofprosecutingtheallegedperpetrator.164
Negativeexperienceswithformallegalmechanismsorthelackofawarenessofthesemechanismshavemotivatedsurvivorstoresorttotraditionalformsofconflictsettlement,eitherprivatelyorthroughlocalcommunitycouncilssuchasjirgas,whichoftenmeanfurtherabusesforthesurvivor.Forexample,familieshavemarriedofftheirdaughterstothesuspectedrapisttodisguisetheallegedcrime.165Inothercases,thegirlfromtheperpetrator’sfamilywasofferedtothesonofthevictim’sfamily.Inthisharmfultraditionalpractice,commonlyreferredtoasBaad,thefamilymarriesoffyounggirlstofamiliestosettleinter-clanorfamilydisputes.Inasmallpercentageofcases,thevictim’sfamilyreceivesmonetarycompensation.
Lack of Services for GBV SurvivorsTherearecurrentlysomeminimalin-countrysupportservicesforsurvivorsofrapeandotherformsofgender-basedviolence,includingforcedmarriagesanddomesticviolence,accordingtowomen’sorganizationsinAfghanistan.Forexample,throughtheMinistryofWomen’sAffairs,thereareanumberofmechanismsinplacetoservewomen,includingtheprovisionoflegaladvice,referraltothejusticesystem,provisionofdefenselawyersandreferraltowomen’sshelters.However,thesegovernmentalservicesarecurrentlyonlyofferedattheprovincial,notthedistrictlevel.
Thereisalackofawarenessandwillingnessofgovernmentofficialsorcommunityelderstotreatsexualviolenceasapriorityandprovideanappropriateresponse.166TherearestillonlyafewNGO-runwomen’sshelterssomanyvictimsareforcedtoremaininabusivehomesorcontinuetoexperienceorwitnessviolence.Intheirdespair,somesurvivorshavetriedtocommitsuicidebysettingthemselvesonfire,resultinginseriousburninjuriesordeath.167AhospitalinHeratprovincethatspecializesinburninjuriesrecorded81casesofself-immolationin1387(2008/2009).Anestimated80percentofthevictimswerechildrenandyoungwomenbetweentheagesof13and25,accordingtothehospital.168
ThenationalChildProtectionActionNetwork(CPAN),169whichconsistsofgovernmentalandnongovernmentalorganizationsinAfghanistan,hassetupaworkinggroupontheprevention,responseandprotectionofchildvictimsofsexualviolence,includingconflict-relatedsexualviolence.Inseveralinstances,thisnetworkhasrespondedtoreportedcasesofsexualviolencebyadvocatingonthesurvivor’sbehalforbyprovidingservices.Forexample,CPANwrotealettertotheMinistryofLabor,SocialAffairs,Martyrs&Disabledtoalertthemtothecaseofamilitarycommanderwhowasaccusedofabductingandrapingan11-year-oldgirlin2008.Thecommanderwassentencedto15yearsimprisonmentpartlyduetoCPAN’sadvocacy.170
Inordertoimprovewomenandgirls’accesstojusticemechanisms,theAfghangovernmenthasestablishedfamilyresponseunits(FRUs)insomepolicestationstoregistercasesofdomesticviolence,includingsexualviolenceandchildmarriage.However,fewpolicestationsarecurrentlyabletoofferthisserviceduetoalackofqualifiedfemalepoliceofficersandfacilitiesthatallowofficerstoconductinterviewsinconfidentialsettings.171MostNGOsorcivilsocietymembersareunawareofexistingFRUsandthusunabletousethemforreferrals.
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Recommendations on GBV The GoAshouldadapttheEliminationofViolenceagainstWomenActtoincludeadefinitionofrapethat
complieswithinternationalstandards.Thegovernmentmustensurethatthelawisimplementedatalllevelsandthatthosefoundguiltyofviolenceagainstwomenandchildren,includingboys,areprosecuted.
The GoAmustdevelopasystematicresponsetoreportsofrapeandotherformsofGBV.Thisshouldincludethepresenceoffamilyresponseunitswithadequatefemalestaffandfacilities,trainingoflawenforcementofficials(judges,prosecutorsandpolice),adequatepsycho-socialandmedicalsupport,andtheprovisionofsheltersthroughoutthecountrywherewomen,girlsandboyscanbesafefromviolenceandabuse.
The GoAmustfacilitatebetteraccessforsurvivorsofGBVtoformallegalmechanismsthattreatsurvivorswithdignitythroughoutthejusticeprocess,protectandprovideredressfortheirsufferingandbringperpetratorstojustice,inaccordancewithUNSecurityCouncilResolutions1820and1888.
The GoAshouldadaptthedatabaseonviolationsagainstgirlsandwomentoincludesexualabusescommittedagainstboysandsharerelevantinformationwiththeCTFMRM.
The humanitarian communityshouldcollaboratewithwomen’sassociationsandcivicgroupsatalllevelstoeducatethepublicaboutthehazardsandproblemsassociatedwithearlymarriage.
Gender-Based Violence
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Child Soldiers
Recruitment by Afghan Security ForcesApresidentialdecreeof2003raisedtheminimumageofrecruitmentintotheAfghanarmyandthepoliceto18andaccededtotheOptionalProtocoltotheCRContheinvolvementofchildreninarmedconflictonSeptember24,2003.However,therehavebeenreportedcasesofchildrecruitmentintotheAfghanpoliceinthenorth,southandsoutheast,accordingtothe2008Secretary-General’sreportonCACinAfghanistan.Mostofthereportedcaseswereduetopoorbirthregistrationsystemsandweakageverification.172
Withunemploymentratesatarecord40percenthigh,adolescentsfacesevereeconomicandsocialpressurestofindajob,evenifthismeansjoiningtheSecurityForces.173Somechildrenhavereportedlyfalsifiedtheiridentificationrecordstojointheforces,oftenwiththeexpressobjectivetousethemoneytosupporttheirfamily.Therearealsoindicationsthatpoliceofficersknowinglyfalsifyidentitycardstorespondtotherisingdemandforpoliceandsoldiers.174
DuringhervisittoAfghanistaninFebruary2010,theSpecialRepresentativeonChildrenandArmedConflictraisedthisissuewithrelevantministriesandgovernmentofficialswhomadecommitmentstoenhanceageverificationprocedures.
Recruitment by Private and Auxiliary ForcesSemi-trainedauxiliaryforcesorprivatesecuritycompanieshiredbythegovernmenttosupportitsownforceshavealsoneglectedtovetnewrecruitstoavoidtherecruitmentofchildren.In2007,AIHRCreportedatleast200boysunder18intheAfghanNationalPoliceandinasemi-formalauxiliarypoliceforceinKandaharprovinceinsouthernAfghanistan.175Whilethegovernmenthasdiscontinueditsuseoftheauxiliarypoliceforce,effortstobuildothersemi-professionalsecurityforcesareunderway(seebelow:SmallArms).
PrivatesecuritycompanieshaveprovedimpervioustoattemptsbythegovernmentandtheAIHRCtomonitorandrevisetheirrecruitmentpractices.HumanrightsorganizationsdocumentedthepresenceofboysinsecuritycompaniesinKandaharandHelmandprovincesin2007,accordingtoAIHRC.176
Recruitment by the Taliban and Other Armed Opposition GroupsTheTaliban,Haqqaninetwork,Hezbi-i-Islami,JamatSunatal-DawaSalafiaandotherarmedgroupshaverecruitedchildrentobeusedasfighters,campguardsorsuicidebombers,particularlyalongtheAfghanistan-Pakistanborder.Insomecases,childrenhadbeentrainedinforeigncountriestoundertakesuicidemissions.Inothercases,childrenhavebeeninvoluntarilyinvolvedintheinsurgencyasexplosiveswerehiddenintheirbagsorclothingunbeknownsttothem.177Forexample,onApril12,2009,ayoungboywaskilledwhenabombplantedinhiswheel-barrowexploded50feetfromagovernmentbuildinginAybakcity,inSamangan.Theboywasnotawarethathewascarryingtheexplosivedevice,accordingtoUNAMA.
TherearenoprecisefiguresonchildsoldiersinAfghanistanbutseveralreportsattesttotheseverityoftheconcern.Inparticular,widespreaddisplacementandtheconsequentabsenceofprotectivecommunitystructureshaveincreasedthevulnerabilityofchildrentorecruitment.TheMarch2009Secretary-General’sreportonChildrenandArmedConflictnotedthatforcedrecruitmentofchildrenbyarmedgroupsis“prevalentinareaswithhighconcentrationsofreturneesorinternallydisplacedpersons,particularlyinthesouthandsoutheasternprovinces.”Thesurgeininterna-tionalarmedforcesisfearedtotriggeranewriseintherecruitmentanduseofchildsoldiersbyarmedoppositiongroupsaspartofnewlarge-scalerecruitmentdrives.
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Disarmament, Demobilization and Reintegration for ChildrenThemostrecentformalDisarmament,DemobilizationandReintegration(DDR)processfacilitatedthereleaseandreintegrationof7,444childrenassociatedwitharmedforcesandgroupsbetweenApril2003andJune2006.178ThisnumbercorrespondscloselytoUNICEF’sinitialestimateof8,000childsoldiersthatwasbasedonarapidassessment.Despiteongoingreportsofchildrecruitmentinallregions,theDDRprocessdidnotprovideforthemonitoringofpotentialrecruitmentorre-recruitmentofchildren,accordingtothe2008Secretary-General’sReportonChildrenandArmedConflictinAfghanistan.Asaresult,thereremainsalackofknowledgeaboutthescopeoftheproblemandthefactorscontributingtoorpreventingchildrecruitment.Significantchallengestothesuccessfulreintegrationofchildrenformerlyassociatedwitharmedforcesorgroupsincludethepresenceofanarmedconflictandarmedgroups,highunemploymentratesanddeterioratingsocio-economicconditionsinthechild’shomecommunity.
WhiletheformalDDRprogramwasconcludedinJune2006,UNICEFincollaborationwithNGOshascontinuedtoprovidereintegrationsupportforwar-affectedandat-riskchildren,includingeducation,skillstrainingandpsycho-socialservicesinAfghanistanandPakistan.Todatehowever,Pakistanonlyhostsonerehabilitationcenter.Thiscenterisunabletoabsorbtheincreasingnumberofformerchildsoldiersreferredtothecenterbyparentsandarmedgroupsanddoesnotacceptanygirls.Theopeningofadditionalcentersisnotencouragedasitisfearedtodrawunwantedattentiontotheprogram,whichmightputthefacility,includingitsstaffandthechildren,atriskofattack.
Detention of Children Formerly Associated with Armed GroupsAfghanlawenforcementagencieshavedetainedchildrenduetotheirallegedassociationwitharmedgroups.179TheNationalDirectorateofSecurityhasreportedlyarrestedchildrenasyoungas12yearsold,subjectingtheminsomecasestointerrogationsonaccountoftheirallegedrolewithinarmedgroups.180Somechildrenreportedill-treatmentwhileindetentionandalackofaccesstolegalassistanceordocumentation,accordingtothe2008SpecialRepresentativeoftheSecretary-General’sreportonCACinAfghanistan.InresponsetorepeatedrequestsbytheUNandNGOs,theMinistryoftheInteriorofficiallygrantedtheUNaccesstotheseandotherchildreninsimilardetentionsituationsinApril2009.The2008
nationallawoncombatingterroristoffensesspecificallystatesthatthe2005juvenilecodeappliestoanyoffensecommittedbyanindividualundertheageof18.
InternationalmilitaryforceshavealsoheldchildrenindetentionfacilitiesinAfghanistan.181TheUnitedStatesadmittedtohavingheld90individualswhowereunder18 yearsoldatthetimeoftheirarrestindetentionfacilitiesinAfghanistanduringthe2002-2008period.182Atpresent,U.S.officialsdeniedthattherewereanymorechildreninISAFdetentionfacilities,whichwasalsoconfirmedbyprotectionpartnerswithaccesstothefacilities,accordingtotheOfficeoftheSpecialRepresentativeonChildrenandArmedConflict(OSRSG-CAC).DuringhervisittoAfghanistaninFebruary2010,theSpecialRepresentativeonChildrenandArmedConflict(SRSG-CAC)alsoreceivedthecommit-mentofthemilitaryleadershipthatprotectionpartnerswouldbeallowedtovisitISAFfacilitiesinordertoensurethatnochildrenweredetainedthere.
Intwoof12allegedcasesofchilddetentioninGuantanamoBay,theU.S.refutedclaimsthatthesewerechildrenandcontinuedtokeeptheindividualsindetentionconditions.183Inonecase,thatofMohammedJawad,aU.S.courtorderedhisreleaseaftersevenyearsinJuly2009onthebasisthathehadbeentorturedintoconfessionbytheAfghangovernmentpriortohisbeingtransferredtoU.S.authorities.However,thecaseofOmarKhadr,whowasreportedly15atthetimeofhisrecruitment,isstillawaitingtrialbyaU.S.militarycommissionattheGuantanamofacilityonchargesofmurder.184TheSpecialRepresentativeonChildrenandArmedConflicthasadvocatedforthereleaseofMohammed,Omarandotherindividualsastheirprosecutionforwarcrimescommittedwhentheywerestillunderagecontravenesinternationallegalstandardsandpracticeforchildreninconflict.185
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Recommendations on Child Soldiers The GoAshould,asamatterofpriority,introducetheprovisionsoftheOptionalProtocoltotheConvention
ontheRightsoftheChildontheinvolvementofchildreninarmedconflictintonationallaw.
The GoAshouldcriminalizechildrecruitmentandtheuseofchildsoldiers,andactivelyprosecutethosewhoexploitchildrenassoldiers.TheyshouldworkcloselywithUNagenciestorefineagedeterminationproceduresandgrantfullaccesstoalltraininganddetentionfacilities,includingthoseoftheNationalDirectorateofSecurity(NDS),formonitoringpurposes.
Armed opposition groupsshouldimmediatelyreleaseallchildrenheldintheirranksandenterintodialoguewiththeUNtoprepareandimplementtime-boundactionplanstopreventfuturerecruitmentanduseofchildreninarmedconflictinlinewithUNSecurityCouncilResolutions1540,1612and1882.
ISAFshouldimmediatelyinformUNICEFandUNAMAofcaseswherechildrenaredetainedonallegationsoftheirallegedassociationwitharmedgroups.
The Country Task Force on MRM (CTFMRM)shouldworkwithprotectionorganizationsandlocalgroupsinPakistanandAfghanistantoassessthescopeandnatureofrecruitmentofchildrenbyarmedgroupsoper-atingintheAfghanistan-Pakistanborderareas.TheCTFMRMshouldalsodevelopasetofjointactionstobetakenatthelocal,nationalandregionalleveltofacilitatethereleaseandreintegrationofchildrenaffectedbyarmedgroupsorforces.
The GoA and the international communityshouldestablishreintegrationprogramsforchildrenformerlyassociatedwitharmedforcesorgroupsandensurethatDDRprogramsareconsistentwithinternationalstandards.
The UN Secretary-GeneralshouldencouragetheestablishmentofataskforcetofindlastingsolutionstotheproblemofyouthunemploymentinAfghanistanandtheregioninordertoutilizethepotentialofchildrenandyouthandpreventtheirrecruitmentintoarmedforcesorothergroupsorintocriminalnetworks(followingsimilarmodelsusedinWestAfrica).ThetaskforceshouldconsistofrelevantUNagencies,theSecretary-General’sYouthEmploymentNetwork(YEN),civilsocietyorganizationsandindividualexperts,andworkcloselywiththeGovernmentofAfghanistan.
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Small Arms
Scope of the ProblemIntheabsenceofaneffectivedisarmamentprocess,risingnumbersofsmallarmscirculateillegallyamongarmedgroups,criminalbandsandprivateindividualsinAfghanistan.EstimatesonthenumberofuncontrolledsmallarmsinAfghanistanrangefrom1.5to10million,accordingtoSmall Arms Survey 2003.RecentarmsflowsarecommonlytracedtoPakistan,whichisinvolvedinthetradeofsmallarmsandtheproductionofammunition.
Thereisnostatisticaldataavailableonchildreninjuredorkilledbysmallarms.However,theeasyavailabilityofsmallarmsposesasevereriskoftheirabuse,andmayunderminetheeffectiveprotectionofcivilians,especiallychildren,accordingtoAmnestyInternational(AI).186Moreandmorestudentsbringgunsandknivestoschoolandusethemasweaponstothreatentheirclassmates(seeabove:Education).TheSecretary-General’sreporttotheUNSecurityCouncil(March6,2008)similarlyhighlightstheneedtomakeprogressonsecuritysectorreform,tocombatpervasivecorruptionandimproveweaponsaccountabilitysystems.
IllegalarmsaremainlyremnantsfromtheSovietinvasion,orreachAfghanistanfromthetribalareasalongtheAfghanistan-Pakistanborderwheremanyofthearmedgroupsoperate.187Surroundedbyfourmajorarmsproducers,includingRussia,China,IndiaandPakistan,Afghanistancandependonasteadysupplyofweaponsthroughtraderatherthandomesticproduction.Inaddition,theflourishingdrugtradecontributestothespreadofsmallarmsaswarlordsobtainweaponstoretaincontrolofopiumfields.188
TheAfghanandinternationalforceshavefurtherpromotedtheillicitownershipofsmallarmsbyemployingprivatesecuritycompaniesormilitiasthatevadegovernmentcontrol.SomeoftheU.S.fundedprogramsaimedatestablishingcivilianforceshavecontributedtothefurtherspreadofillicitarms.189Forexample,in2008,theU.S.
supportedtheAfghanPublicProtectionProgramwhicharmsandtrainscommunitiestoprotectthemselvesagainstattacksbytheTalibanandotherarmedoppositiongroups.Thesecommunityforcesreceivethesameequip-mentandsalaryasthepoliceandoperateasofficialunitsoftheInteriorMinistrybutonlyreceiveabasictwo-monthtraining.Securityexpertshavewarnedthatthisandotherprogramsmighteventuallyresultinthefurtherprolifera-tionofillegalsmallarmsandcreatearmedgroupsthatoperateindependentlyfromthegovernment.Moreover,thehighlevelofdiscretionlefttothelocalcouncilsresponsibleforselectingcommunitymembersfortheprogrammightencourageabuseofpowerandcouldpotentiallyincreasetheriskofrecruitmentanduseofchildsoldiers,especiallygiventhedifficultyofageverificationinAfghanistan(seeabove:ChildSoldiers).
ThereisalsoasignificantportionofNATOarmssuppliesintendedforusebyAfghanSecurityForcesthatremainunaccountedfor,raisingconcernsabouttheirpotentialabusebyarmedgroupsorcriminalelements,accordingtoa2008reportbytheU.S.GovernmentAccountabilityOffice(GAO).TheGAOreportattributestheseleakstopervasivecorruptionamongAfghanSecurityForces,poordepotsecurityinahigh-riskenvironment,andlimitedcapacitiesoftheAfghanSecurityForcestomanagethestorage,movementandusageofmilitaryequipment.InJanuary2009,theU.S.DefenseMinistrydirectedtheDefenseSecurityCooperationAgencytoleadanefforttoestablishaweaponsregistrationandmonitoringsysteminAfghanistan.
Disarmament EffortsTheGovernmentofAfghanistanonlyclarifiedthedistinctionbetweenlegalandillicitarmspossessionthroughaPresidentialDecreeinJuly2004,whichspecifiedpunish-mentforthepossessionofarmsbyarmedgroupsnotassociatedwiththeAfghanmilitaryforces.Todate,therehasnotbeenaconcertednationalorinternationaleffort
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan36
toeffectivelydisbandanddisarmthevariousarmedgroupsandindividualsinthecountry.However,twomajornationalinitiativeshavebeenestablished.
From2003to2005,theUN-ledDDRprogram,theAfghanNewBeginningsProgramme,focusedonforminganewnationalarmyandtargetedsemi-legitimateandformalmilitias.Theprogramresultedinthedemobilizationofmorethan60,000formercombatantsandthecollectionofmorethan57,000weapons,accordingtoSmall Arms Survey 2009.However,astheprogramwasneverintendedasadisarmamentprogram,mostcommandersonlysubmittedthebareminimumoftheirweapons–largelytheunserviceableones–tobenefitfromreintegrationassistance.190
AsasecondphaseoftheUNeffort,in2005,thegovernment-ledDisbandmentofIllegalArmedGroup(DIAG)projectaimedtodisarmthetensofthousandsofarmedindividualsthatcompriseillegalmilitias,whichhadnotparticipatedintheformalDDRprocess,accordingtoSmall Arms Survey 2009.Theprogramprimarilyreliedonlocalcommunityleaderstonegotiatecompliancewithillegallyarmedindividualsandofferedincentivestocommunitiesinexchangeforsupportingdisarmament.Ifthearmedgroupsstillrefusedtosubmittheirweaponsvoluntarily,DIAGprovidedforforcedcompliancebyAfghanSecurityForces.Inpractice,fewgroupshavedisbandedvoluntarily,andtheAfghangovernmenthasnotenforcedcompliancewithDIAGinasinglecase.
AsofJune2006,theDIAGresultedinthecollectionof24,182weaponsofwhichonly40percentwereratedasserviceable.191Further,theprogramreportedlyleftoutgovernmentofficialswhousedtobemilitarycommandersandhadretainedtheirlinkstoarmedgroups,accordingtothereport.TheAfghangovernmentextendedDIAG’smandateuntil2011,citingthepresenceofwarlords,weaklawenforcementinstitutionsandregionalnetworkssupplyingarmsacrossthecountry’sporousbordersassevereobstaclestotheongoingdisarmamentinitiatives.192
SecurityexpertsremainconcernedaboutthelackofpoliticalwillintheAfghangovernmentforinitiativestocurbsmallarmsdistribution.Duetotheircloselinkageswitharmedgroups,somegovernmentofficialshavecounteredanysubstantialprogress.Further,donorshavebeenhesitanttoacceleratedisarmamentanddemilitarizationtoavoidupsettingpowerbalances.193
Recommendations on Small Arms The GoA,withthesupportofinternationalmilitaryforces,shouldincreasethecapacityoftheAfghan
SecurityForcestomanagethemovementofsmallarmsandestablishindependentmonitorstoconductregularchecks.Nationallawsshouldbeestablishedtoputstrictpenaltiesonhandinggunsouttochildrenundertheageof18.
The GoA and other governmentsmustimmediatelyendthesupportandtrainingofcommunityself-defensemilitiasandensurethedisarmamentanddemobilizationofthemilitias;specialattentionshouldbepaidtothepotentialpresenceofchildrenamongthemilitias.
The UN Security CouncilshouldcallontheGovernmentofAfghanistantoenforcecompliancewiththeDIAGprojectby2011.
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Landmines and Explosive Remnants of War
Scale of Contamination and ImpactsAfghanistanisconsideredtobeoneofthecountriesmostcontaminatedbylandminesandexplosiveremnantsofwar(ERW)worldwidewithanestimated630sqkmofmine-affectedlandasofDecember2009,accordingtotheUN-supportedMineActionCoordinationCentreofAfghanistan(MACCA).194Anestimated2,130communitiesareaffectedbylandmine/ERWcontaminationwithmostincidentsconcentratedintheconflict-affectedprovincesofthesouth,includingKandaharandHelmand.195Mostofthelandminesoriginatefromarmedconflictsinthe1980sand1990sbutarmedgroupshavecontinuedtouseminesthroughoutthecurrentconflict.196However,incontrasttopreviousconflicts,individualminesnowtendtobelaidrandomlyratherthanin“minebelts”andoftenbuiltintoIEDs,whicharedetonatedremotelyandintendedtodestroyaspecificmilitaryorciviliantarget,accordingtoMACCA.
Morethan70,000peoplehavebeenkilledordisabledduetolandminesandERWinAfghanistansincethebeginningoftheconflict.197Inaddition,thousandsmorewereinjuredordisabled.Landmineexpertsestimatethat95 percentoflandmineinjuriesresultindisabilities.198Otherciviliansweredisplacedfromtheirhomesandlivelihoodsorcutofffromschoolsandhospitalsduetolandminecontamination.199
Themajorityofthemineincidents,anestimated61 percent,involvechildren,withboysbeingdisproportionatelyaffected.Ofthe734recordedinstancesofchildreninjuredorkilledbyERWsin2008and2009,626weremalesand105 females,accordingtoMACCA’snationaldatabase.Thiscanbeexplainedbyculturally-basedgenderdifferences,includingthegreaterrestrictionsplacedongirls’mobilityandthedifferentsetofresponsibilitiesassignedtoboysinAfghansociety.Thedatarevealsthatmostchildrendiedwhileplayingoutside,tendinganimals,collectingfood,waterorwoodortravelling.Mostofthemineincidentsaffectedchildrenbetweentheagesofeightand17yearsold.
Demining and Mine Risk EducationFrom2005to2009,theaveragenumberofminevictimspermonthfellfrom100permonthtolessthan46permonth,owingtodeminingandmineriskeducationactivities,accordingtoMACCA.TheMineBanTreatyrequiresAfghanistantoclearallminesinareasunderitscontrolbyMarch1,2013.AfghanistanconfirmedinitslatestArticle7reportundertheMineBanTreatythatithadcompleteditsstockpiledestructionobligationunderArticle4.Afghanistanfurthercommittedunderthe2006AfghanistanCompacttoclear70percentofthelandcontaminatedbyminesandunexplodedordnance(UXO)byMarch2011andtodestroyallstockpiledanti-personalminesbytheendof2007,andallunsafe,unserviceableandsurplusammunitionbytheendof2010.AsofJanuary 2010,mineactionprogramshavecleared58 per-centofthearearequiredtoachievethe2011benchmarksoftheAfghanCompact,andcleared41percentofthearearequiredtoachievethe2013benchmarksoftheMineBanTreaty,accordingtoMACCA.
ThroughtheMineActionProgrammeofAfghanistan(MAPA),thelargestmineactionprogramworldwide,morethan12,000hazardousareashavebeenclearedinthelast20years,accordingtoMACCA.However,anestimated630 sqkmarestillcontaminated,affectingover2,000communities.200Particularlyinthoseareaswherearmedoppositiongroupsareactiveandmostlandmine/ERWincidentsoccur,mineriskeducation(MRE)anddeminingeffortsareregularlystalledduetoalackofaccess,risingcriminality,conflictandtheneedfordemininggroupssuchasMAPAtoretaintheirpoliticalneutrality.Toaddresstheseproblems,MAPAhasbeguntoemployacommunity-basedapproachtodemininginvolvinglocalimplementingpartners.Throughthiseffort,implementingpartnersarebeginningtoaccesssomeofthemorevolatileareasinthesouth,suchasKandaharandHelmand.
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan38
MREisintegratedintothenationalschoolcurriculumofAfghanistaninaccordancewithamemorandumofunderstanding(MoU)betweentheMinistryofEducationandMACCAin2007.TheMoUalsoenvisionsagradualtransferofresponsibilityfromtheUNtotheMinistryofEducationonMRE.TheMinistryofEducationhasworkedcloselywithMACCAinatraining-of-trainersinitiativeforgovernmentalchildprotectionofficerswhoeducatedteachersfrom9,000schoolsinMREin2008/2009.SeveralMREinitiativesintendtoreachchildrenbyusingmobilecinemasandminicircuses.FromJanuarytoJuly2009,morethan1millionAfghansreceivedMRE;ofthisnumber,69percentwerechildren,accordingtoMACCA.However,childrencanstillbeseenherding,collectingfirewoodorplayinginareasmarkedasdangerous.
Assistancetosurvivorsoflandmine/ERWincidentsinAfghanistanlargelyconsistsoflow-qualityservicesconcentratedmainlyinurbanareas(seeabove:ChildrenwithDisabilities).201Whetherchildrenhitbyalandminereceivelife-savingassistancealmostentirelydependsonthelocationoftheincident.Transportmaytakeuptothreedays,accordingtoHandicapInternational.Proximitytospecializedmedicalfacilitiesisalsocritical,aschildrenwithdisabilitiesrequirefrequentadjustmentsoftheirprostheticsandothermedicaldevices.However,themajorityofminevictimsinterviewedbyHandicapInternationalinits2009surveystatedthatserviceswereneveroralmostneveradaptedtotheirage,asignificantnumberconsideringthatmostofthemhadincurredinjuriesduringchildhood.
Recommendations on Landmines and ERW The international community and the GoAshouldinvestsufficientfundstoremoveallhazards.With
increasedfundingofUS$60-70millionayear,thehazardsinAfghanistancouldbebroughttoaresiduallevelin6to7years.
The GoAshouldimprovestockpilemanagementandstorageofexplosivematerialtoensurethatunexplodedandabandonedordnanceisnotdivertedtoarmedgroupswhomayusethematerialstomanufactureIEDs.
The GoA,withthehelpoftheinternationalcommunity,shouldexpandassistanceforsurvivorsoflandmine/ERWincidentstoruralareasanddevelopsystemstoprovideemergencytransportand/ortodeploymobilehealthunitstohard-to-reachareas.
The humanitarian community,undertheleadershipofOCHA,shouldseeknewandinnovativewaystoprovidemineactionandmineriskeducationactivitiestohighlyaffectedcommunitiesthataredifficulttoaccessduetoinsecurity.Thisshouldincludeengagingwiththearmedgroupstostoptheuseoflandminesorotherindiscriminateweaponsthathaveadirectimpactonciviliansandtogainfull,unimpededaccesstocontestedareasforthepurposeofclearingmines,providingMREandassistancetosurvivorsoflandmine/ERWincidents.
The humanitarian communityshouldpayspecificattentiontothedistinctneedsandrealitiesofmalesandfemalesofdifferentagegroupsinidentifyingtheimpactandmitigatingthethreatsoflandminesandERW.
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Other Violations and Vulnerabilities
Child LaborArmedconflicthasexacerbatedthesocio-economichardshipofmanyAfghanfamiliesduetodisplacement,thedeathofoneorbothbreadwinnersorthelossoflivelihood.Whilechildrenhavetraditionallycontributedtohouseholdincome,childprotectionorganizationshavenotedanincreaseinchildrenwhoarebeggingonthestreetorareactiveintheinformalsectorinrecentyears.AsofNovember2009,anestimated38percentofAfghanchildrenwereforcedintohardlaborinviolationofinterna-tionalandnationallaw,accordingtoAIHRC.202Insomeprovincesthisnumberissubstantiallyhigher.Forexample,inthewesternGhorprovince,80percentofthechildrenbetween7and16yearsofageareforcedintolabor,accordingtoasurveyconductedbyAIHRC.Children’sworkinghoursoftenexceed45hoursperweek;childrenoftenmustengageinactivitiesthatareharmfultotheirhealthsuchasinhalingdustyairorcarryingheavysacks.Theseactivitiesalsorenderthemsusceptibletoeconomicexploitation,sexualabuseor,insomecases,landmineinjuries.Boysareusuallyinvolvedinworkoutsidethehousewhilegirlsaremoreinvolvedindomesticlaborormarriedoffatanearlyage.Anotherimpactofchildlaboristhatworkingchildrenarelesslikelytoattendschoolwhereasregularschoolattendancecaneffectivelyprotectchildrenfromfull-timework(seeabove:Education).203
Exploitation and TraffickingTraffickingofchildrenwithinthecountryandintoPakistanandIranremainsaserioushumanrightsconcern,accordingtotheU.S.DepartmentofState,Trafficking in Persons Report 2009.ExtremepovertyhasalsoledsomeparentsinHerat,KunduzandTakharprovincestoselltheirdaughterstocriminaltraffickingnetworks,accordingtoAIHRC.204InoneofthecasesreportedbyAIHRCinJanuary2008,adisplacedfamilyinShaydayeecampinHeratProvincereportedlysoldoneoftheirtwinfour-month-olddaughtersforapproximatelyUS$40duetotheirinabilitytoprovideforbothbabies.Whilegirlsaretraffickedforsexual
exploitation,indenturedserviceandearlymarriages,boysareoftenluredbyarmedgroupsintoparamilitarytrainingunderthepremisethattheywouldattendIslamicschoolsinPakistan.
Thearmedconflicthasalsocreatedasecurityvacuumthatallowsarmedgroupsorcriminalgangsoperatingalongtheborderareastoexploitchildrenforillegalactivities.Forexample,criminalelementshavereportedlyused1,000to1,600childrenbetweentheagesofeightand17intheAfghanbordertownofTorkhaminNangarharprovincetocarryflourillegallyacrosstheborderintoPakistan,accordingtoaidagenciesandprovincialauthorities.205Otherchildrenlivingintheseborderareaswerereportedlyinvolvedinsmugglingarms,accordingtothesamearticle.AsmanyUNagenciesandNGOsoperateindependentlyfromtheircounterpartsinPakistanandIran,informationontraffickingandviolationsinvolvingchildrenusedfortransnationalillegalactivitiesisscarce.
In2004,thegovernment,incoordinationwithAIHRC,UNagenciesandcivilsocietyactors,developedaNationalPlanofActiononCombatingChildTraffickingthatlaysoutactionstobetakentostopchildtrafficking,includingawareness-raisingcampaigns,technicalcapacity-buildingofpoliceandsecurityforces,monitoringofborders,anddraftingoflegislationonhumantrafficking.Inpractice,thesemechanismshavenotproventobeeffective,accordingtoAIHRC.Forexample,Afghanistan’snewanti-traffickinglegislation,whichwasenactedinJuly2008,hasnotledtoanyprosecutions.206Someofthereportedcasesclearlyimplicatedtheborderpolicewhoacceptbribesontheborderandallowcrossingswithoutinvesti-gatingthenatureofthemovement,accordingtoUNODC.AfghangovernmentofficialsfurthercomplainedthatPakistaniauthoritiesdonotalwayscooperateonjointinvestigationontraffickingcases,accordingtotheU.S.DepartmentofState’sTrafficking in Persons Report 2009.TheU.S.DepartmentofStatefurtherreportsthatgovernmenteffortstopreventtraffickingorassistvictimshavebeeninsufficienttodate.Asmosttraffickingservicesareforgirls
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan40
only,mostboyvictimsofhumantraffickingareplacedingovernment-runorphanagesorjuvenilejusticecenters,accordingtothereport.207
Inadditiontotrafficking,smugglingofmigrants,particularlymaleunaccompaniedminors,ishighlyprevalentfromAfghanistanintotheGulfregion,Europe,Asia,theAmericas,CanadaandAustralia,accordingtoUNODC.Somefamiliespayforthejourneyoftheirchildrenworkinginthesecountriestosupplementtheirhouseholdincomes.Thisputsthesechildrenatriskofbeingheldcaptivebysmugglersforextramonies,andofviolenceandexploitationwhiletravelling.
Illegal and Arbitrary Arrest of ChildrenThedetentionofchildrenoftenservesasapunitivemeasureratherthanameasureoflastresortinAfghanistandespiteitsharmfulconsequencesforchildren.AjointsurveybyAIHRCandUNICEFrevealedthatchildreninjuvenilecenterswereoftendetainedforoneyearorlongereventhoughtheywerefirst-timeoffendersandhadcommittedonlyminoroffensessuchastheft.Policeofficershavearrestedchildrenforvaguelydefined“moraloffenses,”includingdisobeyingtheirparents,orevenforadultery,sodomyorothersexualoffensesregardlessoftheiryoungageoriftheywerebeingforcedintosex(seeabove:GBV).208Insomecases,lawenforcementagentshaveputunaccompaniedandstreetchildrenorvictimsofabuseintojuvenilerehabilitationcentersasaplaceto“house”them,accordingtothesamereport.209Thelackofa
functioningbirthregistrationsystemposesamajorobstacleinprovidinglegalprotectiontominorsasmostchildrenlacklegalmeansofidentification.
Thejuvenilejusticesystemlacksthecapacitytodealwithchildreninconflictwiththelaw.AlthoughAfghanistanpasseditsJuvenileCodeinMarch2005,manylawofficialsarenotawareofitsprovisions.210AsofOctober2008,onlythreeprovinces,inKabul,MazarandJalalabad,hadjuvenileprimarycourtsandfiveprovinceshadjuvenileprosecutor’soffices.JuvenilerehabilitationcentersexistedinseverallocationsbutUNICEFnotedgapsincoordinatingtheirresponsesleadingtodelaysinlegalandsocialsupportforchildren.211
Duringdetention,childrenhavereportedlysufferedbeatings,tortureandotherverbalandphysicalabuse.Lawenforcementagenciesrarelyinformfamiliesaboutthearrestoftheirchildorprovidechildrenwiththelegalassistancetowhichtheyareentitled.Childrenalsofrequentlycomplainaboutthelackoffood,medicalservicesandrecreationalandeducationfacilitiesinjuvenilejusticecenters.Asmostjuvenilejusticecentersareexclusivelyforboys,girlsareusuallyheldinprisontogetherwithadultfemaleprisonersandhaveevenlessaccesstoeducationandotheropportunities.212Todate,therearenosocialservicestosupportthereleaseandreintegrationofchildrenfromdetentionfacilitiesdespitethestigmaattachedtochildreninconflictwiththelaw,particularlyrelatedto“moraloffenses,”accordingtoAIHRC/UNICEF.213
Recommendations on Other Violations and Vulnerabilities (For further recommendations on trafficking, please see relevant recommendations in chapter on Child Soldiers)
The GoAshouldimmediatelyendthedetentionofchildrenforvaguelydefined“moraloffenses”andwiththesupportofUNICEF,increasethecapacityoflawenforcementagenciestodealwithchildreninconflictwiththelawinlinewithinternationalstandards.TheGoAshouldalsodevelopandimplementguidelinesforthepoliceandjusticesectorstorespondtosituationsinvolvingminors.
The GoAshouldvigorouslyinvestigateandprosecutetraffickingoffensesandseekconvictionunderitsanti-traffickinglegislation;conductpublicawareness-raisingcampaignsontraffickingandensurethatbothboysandgirlsreceiveadequateprotectionandservices.
The GoAshouldimmediatelyratifytheInternationalLabourOrganization(ILO)’sConventiononWorstFormsofChildLabourandtheILOConventiononMinimumAgeofEmployment,andincorporateprovisionsoftheILOconventionsintonationallegislation.Itshouldalsoregularlyconsultwithchildprotectionactionnetworkstosharebestpracticesandidentifygapsinrespondingtochildlabor.
The humanitarian communityshouldlaunchanationalawareness-raisingcampaignonthehazardousandworstformsofchildlaborinordertoprovideinformationabouttheharmfuleffectsofchildlaborandabouttheservicesavailableforaffectedchildren.Theyshouldalsoadoptacommunity-basedapproachtoallchildlaborinterventions.
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UN Security Council Actions
UN Security Council Actions
UNSC Resolutions on Children and Armed ConflictSince1999,theUNSChasadoptedaseriesofresolutionstoimprovetheprotectionofchildrencaughtinarmedconflict.InitslandmarkUNSCResolution(SCR)1612(2005),theSecurityCouncilcalledfortheestablishmentofaUN-ledMRMtocollectdataonsixgraveviolations,includingkillingormaimingofchildren,abductions,recruitmentoruseofchildsoldiers,attacksagainstschoolsandhospitals,rapeorothergravesexualviolenceagainstchildren,andthedenialofhumanitarianaccessforchildren.ThemechanismwastobeestablishedinthosecountrieswherepartiestoconflictwerelistedintheSecretary-General’sannualreportontherecruitmentanduseofchildsoldiers.ThroughSCRs1539and1612,theSecurityCouncilfurtherrequestedthatUNCountryTeamsenterintoadialoguewithallpartiestoconflicttodevelopandimplementtime-boundactionplanstoendtherecruitmentanduseofchildsoldiersandtodemobilizechildrenassociatedwitharmedforcesandgroups.
SCR1882(2009)expandedthemechanismbyrequestingtheSecretary-Generaltolistinhisannualreportsthosepartiesthatengagedinpatternsofkillingormaimingandrapeorothersexualviolenceagainstchildreninconflictsituations.Aspartofthisexpansion,theresolutionalsocalledonUNCountryTeamstoengagepartiestotheconflictinactionplanstohalttheseviolationsandabuses.Further,theresolutioncalledonmemberstatestoholdpersistentperpetratorsofviolationsaccountableandtobringthemtojusticethroughnationalandinternationaljusticemechanisms,criminalcourtsandtribunals.Inthiscontext,theSecurityCouncilreaffirmeditsintentiontousesanctionsagainstpersistentperpetratorsofcrimesagainstchildrenandstrengthenedthelinksbetweentheCouncil’sWorkingGrouponChildrenandArmedConflictandpre-existingsanctionscommittees.
UNSC Actions on AfghanistanTheUNSecurityCouncilpassed27resolutionsonAfghanistanbetween2001andMarch1,2010ofwhichfivespecificallyreferredtochildren.OnlyaftertheTaliban’sinclusionintheSecretary-General’sannexesin2007didtheUNSecurityCouncilresolutionsonAfghanistanstarttoincludereferencestothegraveviolationsagainstchildrenaffectedbyarmedconflict.SCR1806(2008)forthefirsttimecondemnedtherecruitmentanduseofchildrenbyTalibanforcesandexpressedconcernoverthekillingandmaimingofchildrenasaresultoftheconflict,incontraven-tionofapplicableinternationallaw.Inthisresolution,theSecurityCouncilalsostressedtheimportanceofimple-mentingSCR1612(2005)andrequestedtheappointmentofachildprotectionadvisor(CPA)tobepartofUNAMA.SCR1868(2009)reneweditsrequestforaCPAandcalledforthoseresponsibletobebroughttojusticeforviolationsagainstchildren.Inadditiontotherecruitmentanduseofchildsoldiersandkillingandmaiming,theresolutioncondemnedattacksagainstschools.SCR1890(2009)calledfortheimplementationofbothSCR1612(2005)andSCR1882(2009)andreiterateditsrequesttotheSecretary-GeneraltofurtherstrengthenthechildprotectioncomponentofUNAMA,inparticularthroughtheappointmentofchildprotectionadvisors.
Implementation of UNSC Resolutions on Children and Armed Conflict in AfghanistanUN Secretary-General’s Annual Reports on CACThe2007Secretary-General’sannualreportonchildrenandarmedconflictforthefirsttimelistedtheTaliban,inAnnex1,focusingonitsuseofchildrentocarryoutsuicideattacksandashumanshields.Inaddition,thereporthighlightedattacksagainstschoolsandthekillingandmaimingofchildrenininsurgency-relatedviolence.Thereportfurtherdocumentedincidentsinwhichairstrikesbyinternationalmilitaryforcescausedthedeathofcivilians,includingwomenandchildren.Inits2009report,the
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan42
Secretary-GeneralagainnamedtheTalibanfortherecruitmentanduseofchildsoldiers,thekillingandmaimingofchildren,attacksonschoolsandhospitalsandthedenialofhumanitarianaccesstochildren.
The Country Task Force on the MRM (CTFMRM) In2008,followingthevisitoftheSpecialRepresentativeonChildrenandArmedConflicttoAfghanistan,aUN-ledCountryTaskForceontheMRM(CTFMRM)wasestablishedtomonitor,reportandrespondtothegraveviolationscommittedagainstchildreninaccordancewithSCR1612.TheCTFMRMisco-chairedbyUNICEFandUNAMAandincludesUNHCR,UNODC,WHO,AIHRCandaninternationalNGO,whichrequestedtoremainanonymous.OCHAjoinedin2009.Someorganizationstaketheleadinmonitoring,reportingandrespondingtoatleastonetypeofviolationbasedontheirspecificexpertise.Forexample,WHOactsasthefocalpointforincidentsaffectinghealthcareforchildren.
CurrenthighlevelsofinsecuritypreventbothnationalandinternationalNGOsfromfullyparticipatingintheMRM.ManyNGOsarereluctanttobeassociatedwiththeUN-ledTaskForceastheyareafraidtolosetheiralreadylimitedoperationalspace.Asmentionedabove,onlyoneinternationalNGOformallyparticipatesintheCTFMRMontheconditionofanonymityandonlyafewnationalNGOschannelinformationtotheTaskForceinformally.UNICEFistakingtheleadincoordinatingwiththeProtectionClusterandfourChildProtectionActionNetworks(CPAN)operatingin29provincesintheeastern,central,south-easternandwesternregionstostrengthenthepolicyandprogrammaticresponse.
CPANhassuccessfullyrespondedtoviolationsagainstchildrenincludingreachingouttolawyerstoprovideurgentlegaladvicetochildreninjuvenilerehabiliationcentresandmobilizingcommunitiestopreventattacksagainstschools.However,fewnationalandcommunity-basedNGOsthatworkonCAC,GBVorhumanrightsarefamiliarwiththemechanismorknowhowtofeedinformationtotheMRMinaconfidentialandsafemanner.SomeoftheselocalorganizationshaveinformationthatmaybehighlyrelevanttotheMRM.Forexample,onelocalNGO,theAfghanRightsMonitor,whichoperatesthroughanetworkofresearchersin24provinces,reportedmorethan2,080graveviolations,includingtherecruitmentofchildrenassuicidebombersandsoldiers,murder,rape,forcedlaborandthedenialofessentialservicesbywarringpartiesandcriminalgroups.
AccessconstraintstolocationswherefightingisongoingposeamajorimpedimenttothefunctioningoftheTaskForceMRM.Itisalsolimitedinitsabilitytodocumentand
respondtoviolationsthatareatleastpartiallycommittedinneighboringcountriessuchastherecruitmentofAfghanchildrentocarryoutsuicideattacksinPakistan.UNICEF,asco-chairoftheTaskForcehasheldinitialmeetingswithUNICEF,UNHCRandWHOinPakistantoexplorepossibilitiesforamoreactivecoordinationontheMRM.Similarmodelsofcross-bordercoordinationhavebeenpursuedinothercountries,includingChad/SudanandThailand/Myanmar.Todate,themechanismhasnotyetbeenadjustedtoreflectthespecificcircumstancesinAfghanistananditsneighboringcountriesPakistanandIran.
Finally,severalCTFMRMmembersexpressedfrustrationduetothelackofhigh-levelpoliticalsupportwithintheGovernmentofAfghanistan,UNAMA,internationalmilitaryforcesandthewiderinternationalcommunity.
UN Secretary-General’s Report on CAC in AfghanistanIn2008,theSecretary-GeneralsubmittedhisfirstreportonAfghanistantotheSecurityCouncilbasedoninputfromtheCTFMRM,coveringtheperiodfromJuly1,2007toAugust15,2008(S/2008/695).Thereportincludesinformationonallsixgraveviolations.Thereportprovidesinformationontherecruitmentanduseofchildreninarmedforcesandothergroups.ItalsohighlightstheillegaldetentionbytheAfghangovernmentandinternationalmilitaryforcesofchildrenaccusedofassociationwitharmedgroupsinviolationofnationallawandinternationalpractice.WhiletheTaskForcehasdocumentedtheuseofchildrenintheAfghanNationalPolice,itmainlyrelatesthesecasestotheinsufficientageverificationintherecruitmentprocess.Thereportalsoemphasizestheincreasingattacksagainstschoolsandhospitalsaswellastargetedattacksagainstchildrenandotherciviliansbynon-statearmedgroups.Atthesametime,itshedslightontheunintentionalkillingofchildrenduringthemilitaryoperationsofAfghanandinternationalforces.Finally,thereportdrawsattentiontosexualviolencecommittedagainstchildren,particularlyboys,intheongoingarmedconflict.Thereportacknowledgesexistinginformationgapsduetolackofaccessandresources.
The UN Security Council Working Group on CACOnDecember19,2008,theUNSecurityCouncilWorkingGrouponChildrenandArmedConflict(WorkingGroup)consideredthefirstreportoftheSecretary-GeneralonCACinAfghanistanandsubsequentlyissuedasetofconclusionsinJuly2009(S/AC.51/2009/1(July2009).214Mostnotably,theWorkingGroupissuedapublicstatementtoalllistedarmedgroups,includingtheTaliban,requestingthemtoworkwiththeUN-ledTaskForceindevelopingandimplementingconcretetime-boundactionplans.The
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UN Security Council Actions
WorkingGroupalsoencouragedtheAfghangovernmenttosupporttheMRMandtoworkwiththeUNCountryTeamtodevelopactionplanstoaddressviolationsagainstchildrenandstrengthentheprogrammaticresponsetoassistchildren.TheconclusionsalsorequestedISAFandtheAfghangovernmenttocontinuetheirreviewofmilitarytacticsandproceduresinordertopreventciviliancasualtiesandbringperpetratorstojustice.
SeveraloftheWorkingGroup’srecommendationsaimedatstrengtheningthein-countryMRMsystemwereatleastpartiallyimplemented:InordertoexpandtheMRMtoallconflictareas,theWorkingGroupsuggestedthattheCountryTaskForceexplorethebestwaystointeractwiththegovernment,internationalmilitaryforcesandotherrelevantparties.Inresponsetotheconclusions,theGovernmentofAfghanistanappointedahighlevelfocalpointtointeractwiththeCTFMRMonaregularbasisonOctober18,2009.Thegovernmentalsocommittedtolaunchaninter-ministerialSteeringCommitteeonCACconsistingofdeputyministers(Interior,Justice,Education,ForeignAffairs,AdvisortoPresidentonHealthandEducation,NationalDirectorateforSecurity)inearly2010.TheSteeringCommittee’sgoalistodeviseanactionplantoaddressconcernsregardingchildrenaffectedbyarmedconflict;itwillmeetwiththeTaskForce’sco-chairstodiscusstheTaskForce’sbimonthlyreports.ThisisthefirsttimesuchaministerialsteeringcommitteehasbeensetupwithafocusonCACinthecontextoftheMRM.Basedonitscloseinteractionswiththegovernment,theTaskForcehasstartedtoworkwithAfghanofficialstoreviewtheageverificationmechanismandtoexplorealternativestodetentionforchildrenaccusedofassociationwitharmedforcesorgroups.
Inordertoreachsomeofthemostdangerousareasofthecountry,theSpecialRepresentativeonChildrenandArmedConflictalsoinitiateddiscussionswiththegovernment,ISAF,PRTsandtheAfghanSecurityForcesduringhervisitinFebruary2010toestablishan“alertsystem”thatwouldnotifyMRMpartnersofallegedviolationsandallowforindependentverificationandfollow-upbytheCTFMRM.ISAFforcesandPRTshavewelcomedthisproposalandareintheprocessofworkingwiththeUNTaskForcetosetupthemechanism.
InMarch2009,UNAMArespondedtotherequestoftheSecurityCounciltoestablishaChildProtectionunit,whichiscurrentlystaffedbyoneCPA.ThenewpositionhasalreadyledtonotableimpactsinintegratingchildprotectionintoUNAMA’sactivities.Forexample,UNAMA’s2009civiliancasualtiesreportforthefirsttimepublisheddisaggregateddataonchildrenkilledinwar-relatedincidents;earlierreportshadsimplyreferredtothe
“vulnerabilitiesofwomenandchildren.”Theadvisoralsoprovidestrainingandguidancetointernationalandnationalmilitaryforces.Inaddition,UNICEFrecruitedfivefield-levelconsultantsfocusedontheMRMwhoweredeployedinregionaloffices(east,southeast,south,northandwest).However,TaskForcemembershighlightedtheneedtoobtaincommitmentsfromheadsofagenciestoaffirmtheimportanceofthemechanismandtoallocatemorededicatedstafftoworkontheMRM.
Despitethenotableprogress,importantelementsoftheWorkingGroup’srecommendationsremainunaddressed.Incontrasttoprogressachievedinbuildingrelationswiththegovernment,theCTFMRMhasnotbeenabletoengagewithnon-statearmedgroupsonactionplansduetothecurrentpoliticalandmilitarysituation.IncreasingtrooplevelsarelikelytostrainrelationsbetweentheUNandarmedinsurgentsand,accordingtooneTaskForcemember,willmakeitvirtuallyimpossibletoinvolveinsurgentsinanyprotectionissues.Atthesametime,recentsuccessesinengagingwitharmedinsurgentsonhumanitarianconcerns,suchasvaccinationcampaigns,thereopeningofschoolsandthesafepassageforhumanitariandelivery,mayopenupsomepotentialavenuesforcollaboration.Moreover,theupcomingpeacejirgasareyetanotheropportunityfortheAfghangovernmentandnon-statearmedgroupstohighlightchildprotectionconcernswithnon-statearmedgroups,includingtheTaliban.215
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan44
Recommendations on the Country Task Force on the MRM (CTFMRM) All parties to conflictshouldfullycooperatewiththeUN-ledCountryTaskForceontheMRM(CTFMRM)to
prepareandimplementactionplanstoendtherecruitmentanduseofchildsoldiers,rapeandothergraveactsofsexualviolenceandthekillingandmaimingofchildreninlinewithUNSecurityCouncilResolutions1540,1612and1882.Commandersshouldequallyworktowardshaltingallviolationsagainstchildren.
International military forcesshouldworkcloselywiththeUN-ledCountryTaskForcetoestablishanMRM“alert”systemtoimmediatelyinformMRMpartnersofallegedviolations,asenvisionedbytheSRSG-CAC.
The UN Country Team in Afghanistan,underthededicatedleadershipoftheSpecialRepresentativeoftheSecretary-GeneralforAfghanistan(SRSG),shouldcommitstaffandresourcestoprioritizechildprotectionwithintheirrespectiveagencies,includingthefullimplementationofSecurityCouncilResolutions1612and1882.
The Global MRM Steering CommitteeshouldconsultwiththeUNCountryTeamonspecificmeasurestobetakenatthenationalandinternationalleveltoovercomechallengesinmonitoring,reportingandresponsetoviolationscommittedagainstchildreninAfghanistanandtoencourageorganizationstoparticipateintheCTFMRM.Thisincludesprovidingguidelinesandtrainingtogovernmentauthorities,UNagenciesandlocalandinternationalNGOsregardingtheimplementationoftheMRM.
The UN Secretary-GeneralshouldensuretheimmediatedeploymentofadditionalchildprotectionadvisersthroughoutthecountryinanefforttostrengthenthechildprotectioncomponentofUNAMA,asrecommendedbytheUNSecurityCouncil.
The CTFMRMshouldstrengthenthecapacitiesoftheAfghangovernment’snewly-formedHumanRights,GenderandChildren’sUnittoenableittoeffectivelymonitorandinvestigateallallegationsofhumanrightsviolationscommittedagainstchildreninAfghanistan.
The CTFMRMshouldintensifyeffortstoinformlocalhumanrightsandwomen’srightsNGOsontheMRMandoffersafechannelsforinformationsharing.Thisalsorequiresstrengtheningtheirtechnicalandfinancialcapacities.
DonorsshouldsupportstrengtheningthecapacityofChildProtectionActionNetworks(CPAN),whichconsistofgovernmentalandnongovernmentalorganizationsinAfghanistan,torespondmoreeffectivelytoviolationsagainstchildren.
The Government of PakistanshouldinvitetheSRSG-CACtoconductamissioninPakistantoidentifypotentialwaystoimprovecoordinationinending“cross-borderviolations”thatimpactchildrenaffectedbyarmedconflictsuchasthedrugtrade,traffickingandsmallarmstrade.
The UN Country Team in PakistanshouldestablishaWorkingGrouponChildrenaffectedbyArmedConflicttomoreeffectivelyaddresstheconcernsofAfghanrefugeechildrenandcooperatewiththeCTFMRMandotherchildprotectionagenciesinAfghanistantoaddressissuesofcommonconcern,includingcross-borderrecruitmentofchildsoldiersandtrafficking.
The Afghan Independent Human Rights Commission (AIHRC)shouldcoordinatecloselywiththeindependentHumanRightsCommissionofPakistan(HRCP)toconductjointmonitoringandreportingalongtheircommonborderareas.
The UN Secretary-GeneralshouldrequesttheUNCountryTeamsinAfghanistanandPakistan,undertheleadershipoftheSRSG-CAC,toestablishaUNregionalstrategytocontributeactivelytotheprotectionofchildrenaffectedbycross-borderviolations.
Watchlist on Children and Armed Conflict45
Endnotes
1 CentralStatisticsOrganization(CSO)andUNFPA,Afghanistan Household Listing Project (HHL),2003-2005
2 UnitedNationsStatisticsDivision:World Statistics Pocketbook,April20,2009
3 EmailcommunicationfromUNHCR,March2010
4 UNICEF,The State of the World’s Children 2009
5 TheWorldBank,HIV/AIDS in Afghanistan,August2008
6 UNICEF,The State of the World’s Children 2009
7 HRW,We Have the Promises of the World, Women’s Rights in Afghanistan,December6,2009
8 UNAMAHumanRightsUnit,Silence is Violence. End the Abuse of Women in Afghanistan,July8,2009
9 SavetheChildren,PressStatement/BriefingPaper,“TheAfghanGovernmentSubmitsFirstReportonChildRights:OutstandingIssuesforChildreninAfghanistan,”July10,2009
10 U.S.DepartmentofState,Trafficking in Persons Report 2009
11 InformationbasedonMACCA’snationaldatabase
12 Small Arms Survey 2009
13 CoalitiontoStoptheUseofChildSoldiers,S/2008/695;ChildSoldiersGlobalReport2008;MissionReportoftheSRSGforChildrenandArmedConflictMs.RadhikaCoomaraswamytoAfghanistan,20-26February,2010
14 Ibid.
15 HumanitarianPolicyGroup(HPG),“ProvidingAidinInsecureEnvironments:2009Update,”HPGPolicyBrief34,April2009
16 www.anso.org;informationsharedwithWatchlistbyaidorganizationsbasedinAfghanistan
17 TheGovernmentofAfghanistansubmitteditsfirstStatereportontheConventionontheRightsoftheChildinAugust2009.However,Afghanistanhasonlyreportedonafewoftheotherconventionsithassignedand/orratified.
18 TheLondonConference,whichtookplaceinJanuary2010,wasagatheringofmembersoftheinternationalcommunitywhocametogethertofullyalignmilitaryandcivilianresourcesinAfghanistanbehindanAfghan-ledpoliticalstrategy.
19 CenterforStrategicandInternationalStudies(CSIS),Shaping the War in Afghanistan: The Situation in the Spring of 2010,March12,2010
20 Estimatesofthenumberofciviliansinjuredorkilledasaresultofviolencevaryconsiderably,accordingtotheAfghanistanConflictMonitor.UNAMAandAIHRChostthemostcomprehensivedatabasesoncivilianfatalities.However,theirestimatesarelikelytorepresentanunderestimateduetoaccessconstraintsandlimitedresources;theyhaveonlysystematicallyrecordeddatasince2007.UNAMA’sdatabaseisnotaccessibletothepublic.
21 InNovember2009,PakistanitroopslaunchedanewoperationagainstmilitantsinitstribalbeltontheAfghanborder.TheU.S.administrationhasreferredtotheAfghanistan-Pakistanoperationsas“AfPak”since2009,reflectingitsdesiretotakeaunified,regionalapproachtotheconflict.
22 AmnestyInternational(AI)Report2009:State of the World’s Human Rights; The Guardian,“U.S.PoursMillionsintoAnti-TalibanMilitiasinAfghanistan,”November22,2009;The Guardian,“U.S.KeepsSecretanti-TalibanMilitiaonaBrightLeash,”March8,2010
23 AIReport2009;HRW,World Report 2009
24 HRW,World Report 2009
25 IRIN,“Afghanistan:DipinCivilianDeathsinFirstTwoMonthsof2010,”March 1,2010
26 In2009,Afghanistanwasranked181outof182countries,accordingtoUNDP,“FactsheetofHumanDevelopmentReport2009,”October5,2009
27 UNODC,Addiction, Crime and Insurgency: The Transnational Threat of Afghan Opium,October2009;AsiaPolicyReport,Tackling Afghanistan’s Opium Addiction,October4,2009
28 U.S.HouseCommitteeonOversightandGovernmentReform:“AfghanistanandPakistan:OversightofaNewInteragencyStrategy,”June26,2009
29 ReportoftheOfficeoftheUNHighCommissionerforHumanRightsonthesituationofhumanrightsinAfghanistan,January16,2009(A/HRC/10/23)
30 ThisgoaliscomplicatedbyongoingrecruitmentandtrainingproblemsplaguingtheAfghanNationalPolice.Reportsofdrugabuse,corruption,insufficienttrainingandhighdesertionratesmaymakethislevelofexpansiondifficulttoachieve,accordingtotheUnitedStatesInstituteofPeace(USIP),Afghanistan’s Police: The Weak Link in Security Sector Reform,SpecialReport227,August2009
31 HumanitarianPolicyGroup(HPG),“ProvidingAidinInsecureEnvironments:2009Update,”HPGPolicyBrief34,April2009
32 Ibid.;ArmedoppositiongroupshavenotsystematicallytargetedNGOsin2009,accordingtotheAfghanistanNGOSafetyOrganization(ANSO)QuarterlyDataReportQ4,2009.AvailabledatagatheredbyANSOindicatesthatNGOsafetydependstoasignificantextentofitbeingperceivedasneutral,itsactivitytypesandthedegreeofitslocalacceptance.
33 UN,2010 UN Humanitarian Action Plan
34 RefugeesInternational,Afghanistan: Open Eyes to Humanitarian Needs,July 21,2009
35 NPR,“AfghanistanStrivesToRegisterAllNewborns,”July2,2008
36 ANSOQuarterlyDataReportQ4,2009;OxfamAmerica,Quick Impact, Quick Collapse: The Dangers of Militarized Aid in Afghanistan,January2010;FeinsteinInternationalCenter,TuftsUniversity,Afghanistan: Humanitarianism under Threat,March2009
37 UNAMA’ssmallhumanitarianunithadlackedtheindependenceandcapacitytoleadeffortsindefendinghumanitarianprinciplesandnegotiatingaccess.
38 FeinsteinInternationalCenter,TuftsUniversity,“Afghanistan:HumanitarianismunderThreat,”March2009
39 Ontheotherhand,thereisalsoresistanceamongNGOstohavePRTsjoinincoordinationmeetingsoutofconcernthatthiswouldlegitimizetheirroleinhumanitariananddevelopmentwork.
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan46
40 TheGuidelinesfortheInteractionandCoordinationofHumanitarianActorsandMilitaryActorsinAfghanistan,May20,2008
41 OxfamAmerica,“CaughtintheConflict:CiviliansandtheInternationalSecurityStrategyinAfghanistan,”BriefingPaperPreparedforNATOHeadsofStateandGovernmentSummitheld3-4April2009;2003U.S.ArmyPostureStatement,“ForceprotectionconsistsofthoseactionstopreventormitigatehostileactionsagainstDepartmentofDefensepersonnelandincludesfamilymembers,resources,facilities,andcriticalinformation.”
42 IRIN,“Afghanistan:NATO-ledForces,AidAgenciesAgreeonNewModusOperandi,”August5,2008
43 UNICEFAfghanistan-SituationReport2009covering1May–30June;OCHA,AfghanProtectionClusterMeeting(APC),July29,2009;AfghanRightsMonitor(ARM),“Students,TeachersandSchoolsareInnocent!”July29,2009
44 Morethan67percentofciviliandeathsrecordedbyUNAMAwereattributedtoanti-governmentelements.TheAfghangovernmentandinternationalforceswereresponsiblefor25percentofrecordeddeathsin2009.Theresidual8percentofrecordeddeathsin2009couldnotbeattributedtoanyofthepartiestoconflictastheywerekilledincross-fireorbyunexplodedordnance.
45 MostofUNAMA’sannualreportrefersto“womenandchildren,”whichmakesitdifficulttounderstandandanalyzethespecificimpactoftheconflictonchildren.
46 ARM,“ChildrenSufferedtheBruntofWarCasualtiesin2009,”January6,2010
47 MissionReportoftheSRSGforChildrenandArmedConflict,Ms.RadhikaCoomaraswamytoAfghanistan,20-26February,2010
48 Inanotherwidelyreportedincident,aU.S.airstrikereportedlykilledbetween78and92civilians,mainlychildren,inAzizabadinwesternAfghanistanwhileinpursuitofaTalibancommanderonAugust22,2008,accordingtoreportsbyUNAMA’sHumanRightsUnit,theAfghanistangovernmentandAIHRC.TheinvestigationsofU.S.Brig.Gen.MichaelW.CallanintothisincidentfailedtoacknowledgethatanymistakeshadbeenmadebyU.S.forces,dismissingreportsoftheAIHRC,theUNandtheAfghangovernment,accordingtoHRW,“LettertoSecretaryofDefenseRobertGatesonU.S.AirstrikesinAzizabad,Afghanistan,”January14,2009
49 AIHRC,From Hope to Fear: An Afghan Perspective on Operations of Pro-Government Forces,December23,2008
50 CampaignforInnocentVictimsinConflict(CIVIC),LosingthePeople:TheCostsandConsequencesofCivilianSuffering,2009
51 HRW,“MeasureBroughtintoForcebyKarzaiMeansAtrocitiesWillGoUnpunished,”March10,2010
52 AIHRC,FromHopetoFear:AnAfghanPerspectiveonOperationsofPro-GovernmentForces,December23,2008
53 NATO/ISAF,COMISAF’sInitialAssessmentbyGeneralStanleyMcChrystal(Unclassified),August30,2009;ISAFCommander’sCounterinsurgencyGuidance,August26,2009
54 NATO/ISAFTacticalDirective,6July2009;NATO/ISAFPublicInformationCenter,“ISAFIssuesGuidanceonNightRaidsinAfghanistan,”March5,2010
55 AmnestyInternational,“AILists83AfghanCiviliansKilledinNATOAirstrikeinKunduz,”October30,2009;BBC,“GermanMinistersFaceKunduzAirStrikeInquiry,”December16,2009;Deutsche Welle,“Germany’sArmyChiefofStaffResignsOverNATOAirstrikeinKunduz,”November26,2009;The Independent,“MerkelunderFireasGeneralResignsOverKunduzMassacre,”November27,2009
56 CIVIC,Losing the People: The Costs and Consequences of Civilian Suffering in Afghanistan,2009
57 Ibid.
58 BriefingNotepreparedby10NGOsoperatinginAfghanistanfortheNATOHeadsofStateandGovernmentSummit,April3-4,2009;CIVIC,Losing the People: The Costs and Consequences of Civilian Suffering in Afghanistan,2009
59 HandicapInternational,Voices from the Ground: Landmine and Explosive Remnants of War Survivors Speak Out on Victim Assistance,September2009
60 IRIN,“Afghanistan:DisabilityDeprivesChildrenofEducation,”October21,2008
61 CitedbyAIHRC,The Situation of Fair Access of Children to Education in the Country,1384(2005/06)
62 InternationalCampaigntoBantheUseofLandmines (ICBL), Landmine Monitor 2009
63 IRIN,“Afghanistan:SanitationWoesinMakeshiftIDPCamps,”April23,2009
64 AIHRC,Economic and Social Rights Report, 2007
65 IRIN,“Afghanistan:LittletoEatforIDPsinMakeshiftKabulCamp,”January5,2009
66 UNHCR,Humanitarian Considerations with Regard to Return to Afghanistan,May2006
67 StatementofDr.KhaledHosseini,U.S.EnvoyforUNHCR,atthehearingon“CounteringtheThreatofFailureinAfghanistan,”WrittenStatementBeforetheU.S.SenateForeignRelationsCommittee,December17,2009
68 2010UNHCRCountryOperationsProfile-Afghanistan
69 Iranalsohostsover1millionunregisteredAfghanmigrants,accordingtoUSCRI,World Refugee Survey 2009
70 Thesefiguresmayhavechangedduetoreturns,populationgrowthandotherfactors
71 InternationalCrisisGroup(ICG),Afghanistan: What Now for Refugees?August 31,2009
72 CenterforStrategicandInternationalStudies(CSIS),The Refugee Problem: Looking Toward Afghanistan’s Long-Term Stability,December10,2008
73 RefugeesInternational,“AfghanistanandPakistan:RaiseVoicesforCivilianPopulation,”January26,2009
74 IRIN,“Afghanistan:PlightofAfghanChildDeporteesfromIran,”March 22, 2009
75 IRIN,“Afghanistan-Iran:SharpRiseinDeportationsfromIran,”July21,2009
76 ICG,Afghanistan: What Now for Refugees?August31,2009
77 UNHCR,2010 Country Operations Profile - Iran,retrievedMarch2010
78 UN,2010 UN Humanitarian Action Plan
79 UNHCR,2010 Country Operations Profile – Afghanistan
80 UNHCR,Country Operations Profile - Pakistan;UNHCRCountry Operations Profile - Iran;AREU,Searching For My Homeland: Dilemmas Between Borders: Experiences of Young Afghans Returning “Home” from Pakistan and Iran,July2009
81 GovernmentofAfghanistan,“38%ReductioninChildMortality,40% ReductioninMaternalMortalityOccurredDuring2002to2008,”December 21,2009
82 ReutersAlertNet,“AfghanConflictMasksPreventableChildDeaths-AidGroup,”March3,2010;Reuters,“AfghanistanisWorld’sWorstPlacetobeBorn-UN,”November19,2009
83 UNICEF,Country Profile Afghanistan: Maternal, Newborn and Child Survival,November2008
84 SavetheChildren,“TheAfghanGovernmentSubmitsFirstReportonChildRights:OutstandingIssuesforChildreninAfghanistan,”PressRelease,July 10,2009
85 USIP,PublicHealthandConflictSeries,“RebuildingaNations’HealthinAfghanistan,”May2007
86 WHO,HealthinAfghanistan:SituationAnalysis,n.d.(retrievedMarch1,2010)
87 IRIN,“Afghanistan:GrowingNumberofAfghansLackHealthCare–Ministry,”April7,2009
88 ANSO,QuarterlyDataReport,Q3,2009
89 OCHA,Afghanistan:MonthlyHumanitarianUpdateNo.10,September30,2009
90 TheSwedishCommitteeforAfghanistan,“InternationalMilitaryViolentlyEnteredSCAHospitalinWardak,”PressRelease,September6,2009
91 ACBAR,AdvocacySeries,“NGOVoicesonHealth,”April2008
Watchlist on Children and Armed Conflict47
92 NationalReporttotheWorkingGroupontheUniversalPeriodicReview:Afghanistan,February24,2009(A/HRC/WG.6/5/AFG/1)
93 IRIN,“Afghanistan:LittleHealthCareforWomeninPaktikaProvince,”February1,2009
94 UNNews,“UNFoodAgencytoReachOutto9MillionAfghansin2009,”April13,2009
95 WHO,World Health Indicators 2009
96 UNICEF,Humanitarian Action Afghanistan 2007
97 WHO,World Health Indicators 2009
98 SavetheChildren,Saving the Lives of Mothers and Newborns in Afghanistan,March2008;alsosee:HRW,We Have the Promises of the World, Women’s Rights in Afghanistan,2009
99 UNNews,“UNFoodAgencytoReachOutto9MillionAfghansin2009,”April13,2009;NationalPublicRadio,PRI’sTheWorld,“HealthConcernsforAfghanistan’sChildren,”August19,2009
100 NationalReporttotheWorkingGroupontheUniversalPeriodicReview:Afghanistan,February24,2009(A/HRC/WG.6/5/AFG/1).
101 UNICEF,State of the World Children’s Report 2009
102 UnitedNationsPopulationDivision:World Population Prospects: The 2008 Revision
103 UNAMA,“WHOIdentifies23PolioCasesSinceJanuary2009,”October,19,2009
104 IRIN,“Afghanistan:‘We’reNotagainstPolioImmunization’–TalibanSpokesman,”March25,2009
105 UNAMA,“WHOIdentifies23PolioCasesSinceJanuary2009,”October19,2009
106 UNICEF,“ImprovingAccesstoSafeWater,SanitationandHygieneforChildreninAfghanistan,”March12,2009
107 AssociatedPress(AP),“UNFightsHungerinAfghanistan,”December20,2009
108 UNICEF,“ImprovingAccesstoSafeWater,SanitationandHygieneforChildreninAfghanistan,”March12,2009
109 IRIN,“Afghanistan:ThousandsofSchoolsLackDrinkingWater,Sanitation,”May12,2009
110 AIHRC,“EffectiveFactorsAssociatedwithDrugAddictionandtheConsequencesofAddictionAmongAfghanWomen,”February2008;UNODC,Risks Incurred by Children of Drug-Addicted Women: Some Medical and Legal Aspects,January1,1985
111 IRIN,“Afghanistan:DrugAddictsintheSpotlight,”April28,2009
112 UNODC,“UNODCStaffMakingaDifferenceinAfghanistan:MohammadTariq,SocialWorker,”July27,2009;NPR,“DrugAddiction,andMisery,IncreaseinAfghanistan,”April16,2009
113 IRIN,“Afghanistan:‘OpiumEasesMyPain,KeepsMyChildrenQuiet’”,July16,2009
114 IRIN,“Afghanistan:DrugAddictsintheSpotlight,”April28,2009
115 TheLancet,“Violence,SufferingandMentalHealthinAfghanistan:ASchool-BasedSurvey,”September5,2009
116 IRIN,“InBrief:HIV-PositiveCasesJumpto556inAfghanistan,”November9,2009
117 TheWorldBank,HIV/AIDS in Afghanistan,August2008
118 UNICEF,“ChildrenatRiskofContractingHIV/AIDSinAfghanistan,”December1,2008
119 IRIN,“Afghanistan:LittleAwarenessofHIVAmongMigrantsinIran,”January21,2009
120 InternationalFederationofRedCrossandRedCrescentSocieties(IFRC) –Switzerland,“MisconceptionsaboutHIV/AIDSinAfghanistan,”May16,2009
121 IRIN,“Afghanistan:LittleAwarenessofHIVAmongMigrantsinIran,”January21,2009
122 MissionReportoftheSRSGforChildrenandArmedConflictMs.RadhikaCoomaraswamytoAfghanistan,20-26February2010
123 IRIN,“Afghanistan:FiveMillionChildrenNotinSchool,”April21,2009;MissionReportoftheSRSGforChildrenandArmedConflictMs.RadhikaCoomaraswamytoAfghanistan,20-26February2010
124 ACBARAdvocacySeries,“NGOVoicesonEducation,”April2008
125 MinistryofEducation,1386SchoolSurvey–SummaryReport;HRW,We Have the Promises of the World, Women’s Rights in Afghanistan,December2009
126 HRW,We Have the Promises of the World, Women’s Rights in Afghanistan,December6,2009
127 CAREInternational,Knowledge on Fire,September2009
128 OpenSocietyInstitute(OSI),“Afghanistan:EducationinaWarZone,”TransitionsOnline,February13,2009
129 CAREInternational,KnowledgeonFire,September2009
130 Ibid.
131 ReutersAlertNet,“90AfghanSchoolgirlsPoisonedinTalibanGasAttack,”May13,2009
132 IRIN,“Afghanistan:Women’sRightsTrampledDespiteNewLaw,”March8,2010
133 UNICEFinformationprovidedtoWatchlist,March10,2010
134 CAREInternational,KnowledgeonFire,September2009.Community-basedschoolsareusuallylocatedinteachers’homes,compounds,orcommunityspacessuchasmosquesandrunbylocallyrecruitedteachers.
135 IRIN,“Afghanistan:DozensofSchoolsReopeninVolatileSouth,”March26,2009
136 IRIN,“Afghanistan:TalibanForcesStudentsandSchoolsintoMadrasas,”February17,2009
137 UNAMA,TranscriptofPressConferencebyShigeruAyoagi,UNESCOCountryDirectorandGopalSharma,UNICEFDeputyRepresentative,April20,2009
138 SavetheChildren,“TheAfghanGovernmentSubmitsFirstReportonChildRights,OutstandingIssuesforChildreninAfghanistan,”PressStatement/BriefingPaper,July10,2009
139 Ibid.
140 OSI,“Afghanistan:EducationinaWarZone,”TransitionsOnline,February13,2009
141 ACBARAdvocacySeries,“NGOVoicesonEducation,”April2008
142 HRW,We Have the Promises of the World, Women’s Rights in Afghanistan,December6,2009
143 OxfamAmerica,“MemotothePresident:KeyRecommendationstotheNextAfghanGovernment,”October15,2009
144 GovernmentoftheIslamicRepublicofAfghanistanCentralStatisticsOrganization,SummaryofNationalRiskandVulnerabilityAssessment2007/8:AProfileofAfghanistan,http://www.cso.gov.af/
145 AREU,“ConfrontingChildLabourinAfghanistan,”BriefingPaperSeries,May2009
146 Burde,DanaandLeighL.Linden,“TheEffectofProximityonSchoolEnrollment,”May2009
147 SavetheChildren,Violence Free School Project: Baseline Survey Report Jalalabad,September2008
148 2008SRSG’sreportonCACinAfghanistan
149 PajhwokAfghanNews(PAN),“Fourof13AbductedChildrenRescuedinEast,”November1,2009;PAN,“10ChildrenEscapeCaptors,November16,2009
150 UNAMA/OHCHR,Silence is Violence. End the Abuse of Women in Afghanistan,July8,2009
151 Ibid.
152 InformationsharedwithWatchlistbyAIHRCviaemail,March9,2010
Endnotes
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan48
153 ChildprotectionagenciessuchasSavetheChildrenconsiderthisagedifferenceaformofdiscrimination.
154 SavetheChildren,“TheAfghanGovernmentSubmitsFirstReportonChildRights:OutstandingIssuesforChildreninAfghanistan,”PressStatement,July10,2009
155 AIHRC,Economic and Social Rights Report in Afghanistan – III,December2008
156 HRW,We Have the Promises of the World, Women’s Rights in Afghanistan,December6,2009
157 Citedin:HRW,We Have the Promises of the World, Women’s Rights in Afghanistan,December6,2009
158 UNAMA/OHCHR,Silence is Violence. End the Abuse of Women in Afghanistan,July8,2009
159 IRIN,“Afghanistan:War,PovertyandIgnoranceFuelSexualAbuseofChildren,”June6,2007
160 Time,“Afghanistan’sEpidemicofChildRape,”August17,2008
161 TheEliminationofViolenceagainstWomenActhasnotyetbeenenactedbyparliamentbuthasbeengazettedandisthereforeenforceable.
162 HRW,We Have the Promises of the World, Women’s Rights in Afghanistan,December6,2009
163 UNAMA/OHCHR,Silence is Violence. End the Abuse of Women in Afghanistan,July8,2009
164 InterPressService(IPS),“Afghanistan:Rape-TheMostVulnerableVictimsofCorruption,”July28,2009
165 IRIN:“Afghanistan:CallforTougherLawsonRape,”July8,2009
166 UNAMA/OHCHR,Silence is Violence. End the Abuse of Women in Afghanistan,July8,2009
167 PAN,“Self-ImmolationofYoungGirlinJawzjanProvince,”transl.bytheRevolutionaryAssociationoftheWomenofAfghanistan(RAWA),October7,2009
168 BBCPersian,“InAfghanistan,8thMarchCelebratedwithSelf-Immolation,”March8,2009
169 CPANsarecurrentlyfunctionalin28provinces
170 UNICEF,“DoubleVictims:TheTreatmentofChildAbuseandExploitationintheJusticeSystem,”JusticeforChildreninAfghanistanSeries,Issue2,October2008
171 HRW,We Have the Promises of the World, Women’s Rights in Afghanistan,December6,2009
172 CoalitiontoStoptheUseofChildSoldiers,S/2008/695
173 IPSNews,“WithUnemploymentat40Percent,AfghanTeensEnlistinArmy,Police,”November7,2009
174 IPSNews,“Afghanistan:TeenagersEnlistinArmy,Police,”November2,2009
175 IRIN,“Afghanistan:ChildSoldiersOperatingonSeveralFronts,”December19,2007
176 Ibid.
177 MissionReportoftheSRSGforChildrenandArmedconflictMs.RadhikaCoomaraswamytoAfghanistan,20-26February,2010
178 Manyofthesechildrenworkedaspart-timesoldiersandoftenstayedintheimmediatevicinityoftheirlocalcommunities,whichfacilitatedtheirsocialreintegration,accordingtotheBonnInternationalCenterforConversion(BICC),Demobilizing and Reintegrating Afghanistan’s Young Soldiers. A Review and Assessment of Program Planning and Implementation,(Paper42),2005
179 UNICEFinputstoTheUniversalPeriodicReviewAfghanistan,October2008
180 2008SRSG’sreportonCACinAfghanistan
181 Ibid.
182 UnitedStates’initialreporttotheCommitteeontheRightsoftheChildregardingtheinvolvementofchildreninarmedconflict(CRC/C/OPAC/USA/Q1/Add.1/Rev.1)
183 CenterfortheStudyofHumanRightsinAmerica,“GuantanamoTestimonialsProjectForcesRevisedPentagonCountofJuvenileDetainees,”JURISTHotline,November18,2008
184 CRC/C/OPAC/USA/Q1/Add.1/Rev.1
185 OSRSG-CAC,“AllJuvenileDetaineesMustBeReleasedfromGuantanamo,”PressRelease,August25,2009
186 AIPublicBriefing,“Afghanistan:ArmsProliferationFuelsFurtherAbuse,”April3,2008(AIIndex:ASA11/0004/2008)
187 ContemporarySecurityStudies(CSS),Afghanistan, Arms and Conflict: Armed Groups, Disarmament and Security in a Post-War Society,2008
188 IRIN,“Afghanistan:WheretheRulebytheGunContinues,”May2006
189 AssociatedPress(AP),“US-FundedProgramtoArmGroupsBegins,”January31,2009
190 CSS,Afghanistan, Arms and Conflict: Armed Groups, Disarmament and Security in a Post-War Society,2008
191 Ibid.
192 IRIN,“Afghanistan:DisarmamentProgrammeExtended,”October31,2007
193 CSS,Afghanistan, Arms and Conflict: Armed Groups, Disarmament and Security in a Post-War Society,2008
194 UNMineActionCoordinationCentreofAfghanistan(MACCA),MineActionProgrammeofAfghanistan(MAPA):FastFacts,January13,2010
195 Ibid.
196 IRIN,“Afghanistan:LandminesImpedeCivilians’ReturntoVolatileArghandab,”June22,2008
197 Ibid.
198 IRIN,“Afghanistan:Landmines,UXOKill,MaimHundredsin2007,”January21,2008
199 IRIN,“Afghanistan:DisabilityDeprivesChildrenofEducation,”October21,2008
200 MACCA,MineActionProgrammeofAfghanistan(MAPA):FastFacts,August11,2009
201 ICBL,LandmineMonitor2009
202 Afghanistan’slegalprovisionsprohibitchildrenunder18toworkbutallowchildrenbetweentheagesof15and18toengageinlightnon-hazardouswork.AfghanistanisalsointheprocessofratifyingtheILOConventionontheWorstFormsofChildLabourandtheILOConventiononMinimumAgeofEmployment
203 AREU,“FactorsInfluencingDecisionstoUseChildLabour:ACaseStudyofPoorHouseholdsinKabul,2008”;AREU,“ConfrontingChildLabourinAfghanistan,”BriefingPaperSeries,May2009
204 IRIN,“Afghanistan:StopSaleofChildren,RightsWatchdogSays,”February3,2008
205 IRIN,“Afghanistan:PlightofChildLabourersonPakistaniBorder,”February19,2009
206 U.S.DepartmentofState,Trafficking in Persons Report 2009
207 Ibid.
208 UNICEF,Double Victims: The Treatment of Child Abuse and Exploitation in the Justice System,JusticeforChildreninAfghanistanSeries,Issue2,October2008
209 AIHRCandUNICEF,Justice for Children, The Situation of Children in Conflict with the Law in Afghanistan,June25,2008
210 Ibid.
211 UNICEF,DoubleVictims:TheTreatmentofChildAbuseandExploitationintheJusticeSystem,JusticeforChildreninAfghanistanSeries,Issue2,October2008
212 Ibid.
Watchlist on Children and Armed Conflict49
Endnotes
213 AIHRC/UNICEF,Justice for Children, The Situation of Children in Conflict with the Law in Afghanistan,June25,2008
214 ThePermanentRepresentativeofAfghanistancriticizedtheinsufficientdatacollectionoftheCountryTaskForceintheareasthatarecontrolledbyanti-governmentgroupsandalsoquestionedthecredibilityofsomeofthesourcescitedinthereport.ThisimbalanceindocumentationcanpartlybeexplainedbythelimitedaccesstoareaswheretheTalibanandothernon-statearmedgroupsareactive.
215 MissionReportoftheSRSGforChildrenandArmedConflictMs.RadhikaCoomaraswamytoAfghanistan20-26February2010
Setting the Right Priorities: Protecting Children Affected by Armed Conflict in Afghanistan50
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The World Bankwww.worldbank.orgHIV/AIDSinAfghanistan,8/08
Watchlist on Children and Armed Conflict c/o Women’s Refugee Commission122 East 42nd Street, 11th floor - New York, NY 10168-1289 • Phone: 212.551.2941 • Fax: 212.551.3180
Email: watchlist@watchlist.org • Access reports at: www.watchlist.org
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