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UNODC Country Programme for Afghanistan 2012‐2014

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Country Programme for Afghanistan 2012‐ 2014


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DISCLAIMERS This document has not been formally edited. The opinions, figures and estimates set forth in this document are the responsibility of the authors, and should not necessarily be considered as reflecting the views or carrying the endorsement of UNODC or the Secretariat of the United Nations. The designations employed in the presentation of the material in this publication do not imply the expression of any opinion whatsoever on the part of UNODC or the Secretariat of the United Nations concerning the legal status of any country, territory, city or area or of its authorities, or concerning the delimitation of its frontiers or boundaries. Cover pictures © UNODC


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TABLE OF CONTENTS LIST OF ABBREVIATIONS .......................................................................................................... 5

EXECUTIVE SUMMARY............................................................................................................. 6

Structure of Country Programme................................................................................. 8

1. SITUATION OVERVIEW ....................................................................................................... 12

1.1 Political Context................................................................................................... 12

1.2 Drugs and Crime in Afghanistan ........................................................................... 16

2. OPERATIONAL CONTEXT .................................................................................................... 24

2.1 Operational capacity in Afghanistan .................................................................... 24

2.2. Geographical Approach....................................................................................... 24

2.3 Office structure.................................................................................................... 27

2.4 Security Concerns ................................................................................................ 27

2.5 Programmatic Context ......................................................................................... 28

2.6 Guiding Principles ................................................................................................ 31

2.7 Gender and Human Rights ................................................................................... 31

2.8 Partnerships ........................................................................................................ 32

3. PROGRAMME DESCRIPTION............................................................................................... 34

3.1 Introduction......................................................................................................... 34

3.2 Sub‐Programme 1: Research, Policy and Advocacy............................................... 36

3.3 Sub‐Programme 2: Law Enforcement Capacity Building........................................ 43

3.4 Sub‐Programme 3 : Criminal Justice ..................................................................... 47

3.5 Sub‐Programme 4 : Health and Livelihood ........................................................... 53

4. PROGRAMME MANAGEMENT............................................................................................ 58

4.1 Programme Governance Mechanisms and Structures .......................................... 58

4.2 Monitoring and Reporting.................................................................................... 59

4.3 Evaluation............................................................................................................ 59

ANNEX 1 – STATUS OF CONVENTIONS ON DRUGS, CRIME AND TERRORISM .......................... 62

ANNEX 2 – RESULTS AND MONITORING FRAMEWORK........................................................... 64

ANNEX 3 – SUB‐PROGRAMMES BUDGET SUMMARIES ........................................................... 68

ANNEX 4 – UN STANDARD LEGAL CONTEXT ........................................................................... 78

ANNEX 5 – SECURITY COSTS OF OPERATING IN AFGHANISTAN............................................... 80


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LIST OF ABBREVIATIONS

ABP Afghan Border Police ANP Afghan National Police AGO Attorney General’s Office BLO Border Liaison Office CJ Criminal Justice CJTF Criminal Justice Task Force CN Counter Narcotics CNPA Counter Narcotics Police of Afghanistan COAFG Country Office in Afghanistan CP Country Programme CPD Central Prison Department CSO Central Statistics Organization of Afghanistan EUPOL European Union Police Mission in Afghanistan GoIRA Government of the Islamic Republic of Afghanistan HOOAC High Office for the Oversight and Anti‐Corruption IDU Injecting Drug User IOM International Organization on Migration ISAF International Security Assistance Force JPC Joint Planning Cell (Triangular Initiative) MAIL Ministry of Agriculture, Irrigation and Livestock MoI Ministry of the Interior MoJ Ministry of Justice MoPH Ministry of Public Health MCN Ministry of Counter Narcotics MRRD Ministry of Rural Rehabilitation and Development NDCS National Drug Control Strategy PSC Programme Steering Committee SC Supreme Court SPTC Sub‐programme Technical Committees TARCET Targeted Anti‐Trafficking operation in the Region enhancing Communication, Expertise and Training TWG Technical Working Group UNAIDS Joint United Nations Programme on HIV/AIDS UNAMA United Nations Assistance Mission in Afghanistan UNCAC United Nations Convention Against Corruption UNICEF United Nations Children's Fund UNDAF United Nations Development Assistance Framework UNDP United Nations Development Programme UNODC United Nations Office on Drugs and Crime WB World Bank WFP World Food Programme


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EXECUTIVE SUMMARY

Afghanistan is the world’s largest producer of illicit opium and heroin. For the past decade, the country has accounted for an estimated 90 percent of global illicit opiate, fuelling local instability and insurgency, transnational organized crime, local, regional and global drug consumption and HIV/AIDS. The significant poppy cultivation and illicit trafficking of opiates create multiple challenges for Afghanistan, and the alarming growth in the abuse of illicit drugs results not only in human misery for families and individuals, but is also a huge challenge for society. With more than 1 million drug users and 5 percent of the population involved in drug cultivation, Afghanistan pays a very high cost for the illicit drug problem in the country. There is a shared responsibility for the opiate problem in Afghanistan. It is estimated that nearly two thirds of the opium is converted into morphine or heroin in the country. This conversion requires more than 500 metric tons of precursor chemicals, which are smuggled into the country each year by Organized Criminal Groups. Afghanistan and the international community need to join hands to strengthen border controls to prevent the trafficking of drugs and precursors. Afghanistan and its neighbouring countries also need to stem corruption, which fuels money laundering and weakens governance in the region. This Country Programme (CP) aims to bring the motto of UNODC: ‘A world safer from the threats posed by organised crime, drug use and terrorism’ into reality in Afghanistan. The vision of the Country Programme is to strengthen the capacity of the Government of Islamic Republic of Afghanistan to reduce the consequences of drugs and crime in the country. The United Nations Office on Drugs and Crime (UNODC) through this Country Programme aims to contribute to the stability and development of Afghanistan by strengthening the Criminal Justice system and Counter Narcotics efforts and capacity of the Government of the Islamic Republic of Afghanistan (GoIRA). UNODC places a significant importance on the role of its operations based in Kabul, serving the country and regional levels. The head of the Kabul office is responsible for the country and regional programme implementation, as well as being the Special Advisor on Counter Narcotics to the Special Representative of the Secretary General of the United Nations. The Country Programme has been developed through a series of thorough consultations with relevant ministries. In practical terms, the Country Programme document serves three purposes: Firstly, the document is to serve as a guiding strategy for the UNODC Country Office for Afghanistan in support of the Government of Afghanistan’s efforts in the area of Drugs and Crime. Secondly, the document will function as a reference for national counterparts and international partners and stakeholders and as a framework for partnerships. Thirdly, the document serves to inform potential donors of the vision, scope and potential of UNODC


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activities in Afghanistan in support of the Government efforts. The Country Programme is a living document and will be revised as required. Consonant with the UNODC mandate and strategic objectives, the Country Programme addresses the proposed interventions from a human security perspective, in order to enhance the ‘freedom from want’ and ‘freedom from fear’ for Afghan citizens. In practice, this means the issue of vulnerability must be carefully considered in the context of security and development, when developing counter‐narcotics responses. In order to ensure an integrated, comprehensive, and sustainable response to the drug and crime problems in Afghanistan, it will also promote enhanced coordination and cooperation with the Afghan government and civil society as well as with international partners. The key partnerships with the wider UN community are defined by the United Nations Development Assistance Framework (UNDAF) and the Integrated Strategic Framework (ISF). The complex reality in Afghanistan, with strong ties between the illicit drug economy, weak governance, corruption and a lack of human health and security requires a comprehensive response. The UNODC response to this reality is an integrated approach, which aims to identify and address all aspects of the drug and crime situation in Afghanistan through advocacy in the policy arena and through implementation in the field, including the efforts to counter illicit drug economy, and to strengthen rule of law, alternative livelihoods targeting households dependent on illicit cultivation for survival, and assistance to people affected by drug use and dependence.


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Structure of Country Programme

The Country Programme is based on the integrated programme approach and aims to deliver outcomes and outputs through sub‐programmes rather than through stand alone projects and initiatives. The integrated approach mirrors the complexity of the drug and crime related challenges in Afghanistan and focuses on four sub‐programmes: Sub‐Programme 1 ‐ Research, Policy and Advocacy Sub‐Programme 2 ‐ Law Enforcement Sub‐Programme 3 ‐ Criminal Justice Sub‐Programme 4 ‐ Health and Livelihood The Country Programme is also strongly linked to the Regional Programme for Afghanistan and Neighbouring Countries 2011‐14, which allows UNODC to assist governments to tackle drugs and crime related challenges in the regional context. The time period covered by this Country Programme is aligned with the transition process, which forecasts that the majority of international military forces leave Afghanistan by 2014. The Country Programme for Afghanistan 2012‐2014 has a total budget of approximately 117 million USD. Sub‐Programme 1 ‐ Research, Policy and Advocacy ‐ supports capacity development of the Ministry of Counter Narcotics (MCN) in the areas of crop monitoring, research, inter‐agency cooperation and provincial outreach. The survey aims to expand the scope of the illicit crop monitoring system

by continuing to publish the annual opium and cannabis survey, data on illicit drugs prices and eradication verification monitoring reports. In line with the ‘Afghanization’ process, UNODC is embedding this sub‐programme in the MCN, in order to expand and develop further MCN capacity in illicit crop monitoring. With this sub‐programme UNODC aims to support MCN ability to promote public awareness on Counter Narcotics (CN) and Criminal Justice (CJ), and to develop a strong statistical and analytical team within the MCN itself. Under the research component, UNODC will also encourage evidence‐based policy and advocacy on counter narcotics at the MCN and relevant line ministries. It will strengthen the capacity within MCN, primarily its obligation to monitor and evaluate (survey and research), and consequently its function to coordinate CN efforts with other line ministries and to deliver informed reports and policy on counter‐narcotics in Afghanistan. The final outcome will be an Afghanistan Drug Report developed and produced by MCN with contributions from Ministry of Interior (MOI), Ministry of Public Health (MOPH), Ministry of Agriculture, Irrigation and Livestock (MAIL), Ministry of Rural Rehabilitation and Development (MRRD), Central Prison Department (CPD) and Attorney General’s Office (AGO). This report will detail the progress made on the National Drug Control Strategy (NDCS) against set benchmarks. The Research, Policy and Advocacy Sub‐Programme is the backbone of the Country Programme for Afghanistan, providing evidence, policy


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advice and advocacy to support all the other sub‐programmes and ensure they are delivered in an integrated manner. Finally, the sub‐programme also aims to strengthen the institutional and operational capacity of MCN in Kabul and throughout the provinces of Afghanistan to ensure that its vision, enshrined in the National Drug Control Strategy (NDCS), can be effectively pursued and coordinated with other Ministries, and national and international stakeholders throughout Afghanistan. The sub‐programme will support the MCN in mainstreaming counter narcotics efforts in the National Priority Programmes. Sub‐programme 2 ‐ Law Enforcement ‐ supports national partners in Afghanistan in specific niche areas such as border management, capacity development of the Counter Narcotics Police of Afghanistan and precursor control. Sub‐programme 2 focuses on improving the capacity of counter narcotics law enforcement agencies to meet the daunting challenges the country is facing, and is specifically designed to enhance law enforcement capabilities through mentoring, specialized curricula and training, focusing on intelligence‐led policing, and increased use of forensic information for strategic drug control and crime prevention. In working towards a secure border, the sub‐programme includes support in equipment and training for drug interdiction operations as well as Afghanistan’s active participation in regional border management activities. Furthermore, train‐the‐trainer sessions are incorporated to ensure sustainability of all activities. These areas are complemented by the integration of a code of ethics for law

enforcement agencies, introducing integrity and governance principles from the anti‐corruption work of the criminal justice sub‐programme. Specific training on law enforcement techniques such as controlled deliveries and precursor control will also be undertaken. Sub‐programme 3 ‐ Criminal Justice ‐ aims to re‐establish the rule of law, building integrity, addressing impunity, and developing a professional judicial culture, which are all essential pre‐requisites for peace and stability in Afghanistan and an essential basis to address narcotics trafficking. Criminal justice, embedding juvenile justice reform and capacity development, anti‐corruption, prison reform and, anti‐human trafficking measures, are the main priorities agreed with national and international stakeholders where UNODC can make its best contribution for the next three years. The sub‐programme will promote and support criminal justice reform in order to align Afghanistan’s laws to international standards. It focuses on anti‐corruption efforts, which includes support towards compliance with the United Nations Convention against Corruption (UNCAC), and increased capacity for evidence‐based policy and adjudication. Measures intended to enhance criminal justice cooperation nationally and internationally, to prevent and combat trafficking in persons, as well as to create a culture of integrity based on Codes of Conduct, are central to this sub‐programme. Equally significant, prison system reform to be implemented as an integral component of the rule of law and for improved management and


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administration, and including social reintegration programmes, with special focus on juvenile justice system reform, will be pursued. The sub‐programme will explore possible interface with the Regional Programme to support cooperation on strengthening of financial investigation units (i.e. FINTRACA in Afghanistan). Through this sub‐programme UNODC will advocate for human rights, gender and special care for vulnerable groups in the justice system. Sub‐programme 4 ‐ Health and Livelihoods ‐ aims to address the needs of drug affected communities, offering alternative livelihood streams to poppy/cannabis growing households and persons affected by drug use and dependence including injecting drug users, with special focus toward vulnerable groups such as injecting drug users and populations in closed settings. Drug use in Afghanistan is fuelled and sustained by local cultivation and the production of drugs compounded by difficult socio‐economic conditions (extreme poverty, unemployment, lack of basic services, vulnerability to coercive demands, and lack of rule of law). Thus the objective of this sub‐programme is to address these interlinked problems in the following manner:

Sub‐programme 4 is also designed to support the MCN in effectively leading coordinated national CN public awareness campaigns and to increase harmonisation among different stakeholders. A special focus will be given to children. In light of the increasing challenges that drug dependence and HIV/AIDS present, ‘Afghanization’ will be promoted to encourage Afghan ownership to respond to drug use and associated problems.

The major objective of the support in the area of health is to provide evidence based prevention and treatment for illicit drug use, drug dependence, and drug‐related diseases such as HIV/AIDS. Incorporating humanitarian interventions in its response, the health programme additionally focuses on marginalized groups: the homeless,

mobile populations of returnees and refugees, women and children. The sub‐programme aims to address the serious shortfalls in available treatments for drug dependence; it will contribute to the establishment of evidence‐based treatment and care services across the country, including residential and outpatient treatment centres. The programme will also address issues around treatment outcome including relapse prevention, socio‐economic rehabilitation including vocational training for recovering users, and reintegration.

Support in the area of livelihoods covers three main areas. Firstly, the programme will strengthen the capacity of MCN on Alternative Livelihoods (AL) policy development, programme planning and impact monitoring. Secondly, the programme will support the strengthening of inter‐ministerial and government – non‐government coordination on AL, promoting the genuine mainstreaming of CN across the wide array of traditional development programmes. Thirdly, the programme will develop a range of strategic evidence‐based AL sub‐projects centred on community


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participation, while endeavouring to promote better uptake, promulgation and sharing of lessons learned from past AL support. The AL sub‐projects will focus on: agricultural diversification and value addition, paying special attention to the role of women; training of key farmers; job creation through skills enhancement; rehabilitation and protection of livelihoods resources; and entrepreneurship. Programme Management, Governance and Funding UNODC’s Regional Representative and head of the Country Office in Afghanistan is ultimately responsible for all of UNODC’s operations in Afghanistan, carries the function of Special Advisor on CN to the SRSG and is responsible for the Regional Programme for Afghanistan and Neighbouring Countries. The Deputy Representative is the day to day manager and will oversee the implementation of Country Programme. A senior manager with in depth substantive knowledge leads each of the sub‐programmes.

A Programme Steering Committee (PSC) will be established to oversee the Country Programme. The PSC will ensure good communication between UNODC and government counterparts, particularly with regards to providing strategic direction of programme activities. The overall budget for the Country Programme 2012‐2014 is approximately US$ 117 million. UNODC expects to mobilize the majority of required funding from traditional donor countries to UNODC Afghanistan, but the organization is constantly seeking partnerships with new member states, other organizations and private companies. To implement the integrated Country Programme, UNODC encourages donors to channel funds directly to the Country Programme or one of its Sub‐Programmes – not to specific outputs and activities. Donors are also called upon to accept UNODC’s standard bi‐annual programme progress reports, in order to direct more financial and human resources to the implementation of programme activities.

UNODC Afghanistan: Country Programme 2012‐2014

1. SITUATION OVERVIEW Afghanistan is one of the most difficult and demanding development environments in the world.1 With an estimated population of close to 30 million and a GDP at US$ 18.7 billion (US$ 632 per capita) in 2011, Afghanistan is one of the least developed countries in the world. It is estimated that 36 percent of the Afghan population lives below the poverty line, meaning that approximately 9 million Afghans are unable to meet their minimum basic needs.2 For decades the country has suffered from endemic violence due to instability caused by war, insurgency, and the drug trade.

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1.1 Political Context

Between 1978 and 2001, Afghanistan experienced a series of conflicts and regime changes. During this time, armed violence killed nearly two million Afghan citizens, orphaned or disabled another million, and forced up to one third of the population to flee the country as refugees, with many others displaced internally. These years of conflict devastated the physical and social infrastructure of the country, destroyed agricultural production, and disrupted the education of an entire generation of Afghans.

By 2001, Afghanistan was considered on the brink of state collapse. Following the 11 September 2001 terrorist attacks in New York and Washington DC, a United States of America‐led military invasion toppled the Taliban for sheltering Osama bin Laden. The

1 Afghanistan Human Development Index ranks of 172 out of 187 countries with comparable data. 2 World Bank and Ministry of Economy 2010, Poverty in Afghanistan.

UN‐sponsored Bonn Conference in 2001 established a process for political reconstruction that included the adoption of a new constitution. In December 2004, Hamid Karzai became the first democratically elected president of Afghanistan and the lower house of the national assembly (Wolesi Jirga) was elected in the following December.

The International Security Assistance Force (ISAF) is a NATO‐led security mission in Afghanistan established by the United Nations Security Council on 20 December 2001 by Resolution 1386 as envisaged by the Bonn Agreement. In 2012, 48 countries, about one fourth of all UN member states, contributes to ISAF forces in Afghanistan.

Despite ten years of national and international efforts and initiatives, the situation in Afghanistan remains grave, hampered by insecurity and the weak rule of law.3 Nonetheless, development has been achieved in several key areas, e.g. the number of Afghan children attending school has increased from 1 million to 8 million over the last ten years.4 In 2001, only ten percent of the Afghan population had access to basic health care; today the number is close to 85 percent.5

3 2011 marked the fifth year in a row that civilian casualties have increased in the armed conflict in Afghanistan, UNAMA 2011 Annual Report on Protection of Civilians in Armed Conflict documented 3,021 civilian deaths in 2011 compared with 2,790 in 2010 and 2,412 in 2009. Over the past five years, the number of Afghan civilians killed in the armed conflict has increased each year, with a total of 11,864 civilian lives claimed by the conflict since 2007. 4http://www.unicef.org/infobycountry/afghanistan.html 5 World Bank, Building On Basics In Health Care

http://en.wikipedia.org/wiki/NATO

http://en.wikipedia.org/wiki/Afghanistan

http://en.wikipedia.org/wiki/United_Nations_Security_Council

http://en.wikipedia.org/wiki/United_Nations_Security_Council_Resolution_1386

http://en.wikipedia.org/wiki/Bonn_Agreement_%28Afghanistan%29


The annual GDP per capita has nearly tripled since 2001 to more than $600; inflation has remained low, averaging 8 percent; and government revenues experienced exponential growth. While these figures paint a rather impressive picture of post‐conflict economic recovery, similar to many other post‐conflict reconstruction cases, a closer look reveals a “bubble economy” distorted and driven by massive inflows of military spending and external aid that has benefited an elite few. At the macro‐level, World Bank figures show that growth and fiscal performance is fuelled by consumption and driven by sectors associated with the war economy and external aid – transportation, construction, security, and support services.

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To date, the service economy sector amounts to 53.6 percent of GDP while the contribution of agriculture and the opium economy is estimated at 32.5 percent and 16 percent of GDP, respectively.6 According to the World Bank, the current level of annual aid is estimated to be around $15.7 billion in 2010. Following a meeting of NATO Foreign Ministers at the end of April 2010, where agreement on a common roadmap for progressive security transition to the Afghan authorities was reached,7 the Kabul Conference was held on 20 July in Kabul.8 The Communiqué agreed at the Kabul Conference reiterated the support of the

6 The World Bank, May 2011, Issues and Challenges for Transition and Sustainable Growth in Afghanistan, Powerpoint Presentation, Kabul, 2 May 2011. 7 The process formally began on 20 July 2011 and will be completed by the end of 2014. 8 The London Conference (January 2010) also prepared the grounds for the Kabul Conference, where Afghanistan for the first time would host the international community.

international community to the objective “that the Afghan National Security Forces should lead and conduct military operations in all provinces by the end of 2014.

The 22 National Priority Programs (NPP) represents a new commitment in the Afghan national development strategy as they transferred civilian and military responsibilities from international partners to the afghan government and civil society organizations. The NPPs presented at the Kabul International Conference on Afghanistan aim to empower all Afghan citizens and their institutions to contribute to improved service delivery, job creation, equitable economic growth, public revenue generation, the protection of the rights of all Afghan citizens, and a durable and inclusive peace. The 22 NPPs are grouped into 6 clusters


Next to the transition plan agreed, at the Kabul conference held in July 2010, the Government presented an Afghan‐led plan for improving development, governance and security, including 22 priority programmes to enhance service delivery and produce concrete results for the Afghan people. At the same conference the international community pledged to align resources and activities in support of the transition for an effective and accountable Afghan leadership and ownership. Counter Narcotics was not one of the 22 priority programmes, but was seen as a cross cutting issue.

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The Istanbul Conference on 2 November and the Bonn Conference on 5 December 2011 both highlighted the threat posed by illicit production, trafficking and consumption of drug and emphasized the principle of shared responsibility. The Bonn conference ended by releasing a set of Conference Conclusions welcoming the successful start of the transition process and stressed that Afghan authorities are assuming full security responsibility for their country and will complete this process by the end of 2014. The declaration also affirmed the commitment of the international community to continued support for Afghanistan after 2014. As a concrete follow up to the Bonn Conference, the third Paris Pact Ministerial Meeting was held in Vienna on 16 February 2012. In the Vienna declaration, Paris Pact partners recognized their shared responsibility to counter the sustained menace of illicit drugs9

9http://www.unodc.org/documents/Paris‐Pact/Vienna _Declaration_ENGLISH_Final_14_February_2012.pdf

“The production, trafficking and consumption of narcotics equally pose a grave threat to Afghanistan’s security and the growth of a legitimate economy as well as to international peace and stability. Recognizing their shared responsibility, Afghanistan and the International Community reiterate their determination to counter, in a comprehensive manner, including by crop eradication, interdiction and promoting alternative agriculture, the menace of illicit drugs, including drug precursors, which causes widespread harm and suffering. We recognise that the narcotics problem is a global challenge which also requires tackling the demand side.”

Paragraph 15 of the Bonn 2011 ‐ Conference conclusions ‐

Drawing on the outcomes of the recent conferences and main events on Afghanistan, three areas are especially important to have in mind when planning and implementing counter narcotics programmes in Afghanistan. Firstly, by following the Afghan Government motto “Afghan led, Afghan owned” UNODC aims to transfer technical capacities to the GoIRA. Within the framework of ‘Afghanization’, Afghan ownership and Afghan leadership is promoted. The United Nations is actively seeking to transfer activities and knowledge to GoIRA, while taking on a role in capacity building and coordination. Secondly, ISAF and a large number of international actors are focusing on the ‘transition process’ and a gradual military disengagement from Afghanistan as of 2014, which could be accompanied by diminishing international resources for Afghanistan. This means on one hand that the UN has to anticipate this reality and plan to work more

http://www.auswaertiges-amt.de/cae/servlet/contentblob/603686/publicationFile/162627/Konferenzschlussfolgerung_engl.pdf

http://www.unodc.org/documents/Paris-Pact/Vienna


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efficiently, in order to do more with less. On the other hand, it is of paramount importance to ensure that sufficient resources remain available for counter narcotics, since the historical record shows that a decrease in attention might well lead to resurgence in drug cultivation. Thirdly, countries neighbouring Afghanistan are increasingly aware of the cross border threats emanating from Afghanistan. Consequently, there is a trend towards increased assertiveness from regional partners and stakeholders. Countries in the wider region are increasingly aware of their responsibilities when it comes to organized crime, including drug and precursor trafficking, but are also demanding ownership in response to the destructive effects of Afghan narcotics on their respective societies. Therefore, this Country Programme is closely aligned with UNODC Regional Programme for Afghanistan and Neighbouring Countries. The situation in Afghanistan today is not business as usual. The challenges posed by narcotics and organized crime in Afghanistan are immense and cannot be dealt with in the short term only. UNODC has neither the resources nor the capacity to diminish the illicit economy unilaterally. However, with the transition process and the Kabul process, a window of opportunity to shape the future of counter narcotics and rule of law in close partnership with the Afghan Government is opening up. With this Country Programme, UNODC is determined to seize this opportunity and to bring counter narcotics and rule of law back to the centre of the policy debate and the national development agenda.

1.2 Drugs and Crime in Afghanistan

Despite ten years of national and international efforts and initiatives, the problems related to drugs and crime in Afghanistan remain an immense threat to national, regional and international stability, security and development. Since 2002, Afghanistan has remained the largest producer of illicit opium in the world. On top of that, Afghanistan is a significant producer of cannabis resin (i.e. hashish). The illicit drug‐economy permeates every aspect of Afghan society, ranging from politics to the economy, the insurgency to the lives of individuals. The Afghan community pays the highest cost as a result of the consequences of drugs and resultant crime in the country. Even at current levels of production, opium and cannabis prices are high, providing farmers with an increased incentive to cultivate illicit crops. Additionally, there are no reliable crime statistics in the country, because the proper civilian police service is not yet in the place and the cases of violent crime are often resolved through customary law mechanisms (local shuras and jirgas). According to the Afghan police statistics 3,847 incidents (including violent crimes) were reported in 2011. This compared to Canada where it has approximate same size of the population10, and the yearly bases 2,516,918 crime incidents are reported.11 The crime statistics of Afghanistan, also shows that only seven cases of bribery and embezzlement were recorded in 2011. However, according to UNODC Corruption Report 2010, ‘’one Afghan out of two, in both rural and urban

10 Canada’s population is close to 35 million. 11 http://www.nationmaster.com


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communities, had to pay at least one kickback to a public official’’. When looking at the current situation and the links between drugs, corruption and lawlessness, it should be clear that we can no longer afford to continue along the same path and that increased impetus is required to safeguard the future of Afghanistan. The coming few years will be crucial for the future of Afghanistan. Therefore, strengthened counter narcotics, crime prevention and criminal justice system, drug and HIV prevention, treatment and care efforts in Afghanistan are key to the transition and Kabul process. a) Opium Cultivation and Production Opium poppy cultivation and the drug trade heavily influence the Afghan economy.12 Trade in opiates accounts for 16 percent of Afghanistan’s GDP and approximately 191,000 households, or 5% of population, are involved in opium cultivation.13 In many of the major production areas, some farmers may not be dependent on opium or cannabis crops but choose (or are coerced) to grow it. In other areas, poor households are highly dependent on illicit crops for survival. Across the country, many itinerant workers have come to rely on income from weeding or harvesting illicit crops to support their families. In making the decision to cultivate an illicit crop, farmers must weigh many factors: food insecurity, associated risks, accessibility to agricultural inputs, credit, and markets, religious sentiments and

12 Cith D. Maass, “Afghanistan’s Drug Career”, March 2011, Stiftung Wissenschaft and Politik, Afghanistan Analysts Network. 13 MCN/UNODC, Afghanistan Opium Poppy Survey 2011

perceptions of morality, previous experience of cultivation, respect for Government, community mobilization, external pressures, and so on. It is not merely the opium poppy farmers who breed the narco industry, but equally the smugglers who encourage and enable farmers to cultivate opium. The narco‐traffickers and smugglers are the active driving force in the evolving war economy whereas poverty, inequality, lawlessness, insecurity, corruption and conflict are its enabling factors. In other words, a dangerous interplay between ‘grievances and greed’ undermines the government’s ability to resist the insurgency. Fuelling the patronage systems through their illicit profits they are able to forge alliances based on shared financial interest, thereby furthering their power and political influence at both the local and central levels of governance, and in turn delivering ‘protection’. In this context conflict is easily abused or ‘created’ as a pretext in the interest of personal gain, both outside and within state institutions. In 2011, the farm gate value of opium was US$ 1,4 billion, which is exceptionally high. From 2002 to 2010, UNODC observed the trend where beneficiaries of the opium economy were farmers (20%), insurgents (10%) and afghan drug traffickers (70%) fuelling corruption and the illegal economy.14 The distinctive line between ideological insurgents and predatory drug traffickers driven by greed is convoluted. Major drug traders have been known to make large

14 For example, in 2009 UNODC estimated that the Afghan Taliban earned around US$155 million, Afghan drug traffickers US$2.2 billion, and Afghan farmers US$440 million (UNODC, The Global Afghan Opiate Trade, A Threat Assessment, July 2011)


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donations to the Taliban, further fusing insurgent and criminal groups.15

The number of poppy‐free provinces decreased from 20 in 2010 to 17 in 2011 as Baghlan and Faryab provinces in the Northern region and Kapisa province in the Eastern region lost their poppy‐free status. Eradication in 2011 (3,910 hectares) was 65 % more then 2010.

The total area under opium poppy cultivation in Afghanistan in 2011 was estimated at 131,000 hectares, a 7% increase compared to 2010. 95% of total cultivation took place in nine provinces in the Southern and Western regions, which include the most insecure provinces in the country. This confirms the link between insecurity and opium cultivation observed since 2007. Potential opium production in 2011 was estimated at 5,800 metric tons. a 61% increase compared to 2010, when opium yields were much reduced due to plant diseases.16 (see FIGURE.‐ I)

Afghanistan, the centre of global heroin manufacture, has approximately 300‐500 laboratories in operation with an output of approximately 380‐400 tons of heroin per year.17 Heroin labs are mainly located where there is limited law enforcement capacity. (see FIGURE.‐ II)

FIGURE.‐ I

2804

1693

4565

3278

185

3400 3600

4200 4100

6100

82007700

6900

5800

3600

241

34 33 2840

250

301

383

92 102 94 8670

48

223

7663 49

77

136

0

1000

2000

3000

4000

5000

6000

7000

8000

9000

1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011

Opi

um P

rodu

ctio

n in

Met

ric

tons

0

50

100

150

200

250

300

350

400

450

Fres

h O

pium

& C

anna

bis

Pric

e (U

S$/K

g)

Opium production Price opium Price cannabis

15 “Addiction, Crime, and Insurgency: The transnational

threat of Afghan opium,” 2009, UNODC.

17 UNODC, The Global Afghan Opiate Trade, A Threat Assessment, July 2011 16 MCN/UNODC, Afghanistan Opium Poppy Survey 2011


FIGURE.‐ II

Opium cultivation in Afghanistan, 2011 (at province level)

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Source: Government of Afghanistan – National monitoring system implemented by UNODC Note: the boundaries and names shown and the designations used on this map do not imply official endorsement or acceptance by the United Nations.

b) Trafficking and Seizures Globally, around 16.5 million people use illicit opiates annually (opium, heroin and morphine), generating a US$68 billion global opiate market in 2009. Heroin is the most abused opiate worldwide, with 12‐13 million users consuming an estimated 375 tons of pure heroin per year (equal to 2,800 tons of opium). Opium abuse is also significant with users consuming an estimated 1,300 tons of raw opium in 2009. In total, over 4,000 tons of opium production were needed to meet global heroin and opium consumption in 2009. Europe and Asia are the key global consumption markets, and they are largely supplied by Afghan opium.

Opium is the condensed juice of the poppy plant. It contains psychoactive substances including morphine (from which heroin is derived), codeine, thebaine, papaverine and noscapine. Opium, together with its psychoactive constituents and their semi‐synthetic derivatives, for example heroin (derived from morphine) are described as opiates. UNODC informant surveys in Afghanistan indicated that 7 kg of air‐dry opium are needed to manufacture 1 kg of brown heroin base of unknown purity. Typical purities found in seized heroin base in Afghanistan range from 50% to 80%.


In Afghanistan and elsewhere, transnational organized crime groups were the main beneficiaries of this extremely profitable trade. Being a landlocked country, the trafficking routes from and to Afghanistan, are by land or air. These borders are difficult to patrol and interdiction is equally difficult to maintain. Afghan heroin is trafficked to every region of the world, except South and Central America. Heroin flows from Afghanistan to Pakistan (160 mt), the Islamic Republic of Iran (115 mt) and Central Asia (90 mt) before moving to the main consumer markets in West and

20

FIGURE.‐III

Heroin trafficking flows from Asia, 2009 (source: UNODC)

Central Europe, East Europe, and East and South‐East Asia. In 2009, global seizures of opium and heroin appeared to stabilize, amounting to 653 and 76 mt, respectively. The largest quantities of opiates continue to be seized by the Islamic Republic of Iran and Turkey, countries that serve as transit points for heroin trafficked from Afghanistan on the ‘Balkan route’ to West and Central Europe. Seizures within Afghanistan remained limited in 2009, amounting to 36 metric tons of opium and 2.2 metric tons of heroin – 5.5 % and 2,9 % of global opium and heroin seizures, respectively18. (see Figure.‐ III)

18 In 2011, Counter Narcotics Police of Afghanistan conducted 1,807 operations, resulting in seizures of 53 mt. of opium, 33 mt. of heroin, 58 mt. of hashish , 29 mt. of morphine and 112 mt. of precursor chemicals.


21

It is estimated that nearly two thirds of the opium is converted into morphine or heroin in the country. This conversion requires more than 500 metric tons of precursor chemicals. Though Afghanistan has no legitimate requirement for the majority of these chemicals, they are smuggled into the country each year by organized criminal groups. The most critical of these substances is acetic anhydride (mainly originating from Europe and East Asia19) of which an estimated 1,000 mt is annually smuggled into Afghanistan. In 2011, Afghan authorities concluded the most successful operations in the region seizing 23 mt of this substance. c) Drug use and HIV/AIDS The multiple threats engendered by Afghan opiates are not limited to distant destination markets. In Afghanistan and its neighbouring countries, the level of opiate consumption has risen sharply in the last decade. One of the key findings of the second national survey on drug use (2009) was that over a million people, or almost 8 % of population aged between 15 and 64 are drug users in Afghanistan. Around 40% of the known drug users are refugees returning from Iran and Pakistan. A concerning trend is that the number of regular heroin users in the country increased from 50,000 in 2005 to 120,000 users in 2009. Afghanistan has one of the highest rates of opiate consumption, at the same level as Russia and Iran, with a prevalence rate of 2.64% of the population or approximately 325,000 persons.20 The 2009 Survey indicates that 6% of all drug users had

19 UNODC, The global Afghan Opiate Trade, A Threat Assessment, July 2011 20 World Drug Report 2010

injected at least once in their lifetime, and around two‐thirds were current and regular injectors. An alarming 87% of injecting drug users were sharing needles/syringes with other injectors. Injecting drug users are very vulnerable to infectious diseases and recent data confirms that Afghanistan has evolved towards a ‘concentrated’ HIV/AIDS epidemic.21 The highest HIV prevalence is among injecting drug users (IDUs) with an average of 7% in three cities (Herat, Kabul and Mazar). Access to services for both drug treatment and HIV prevention remains a big challenge in the country. d) Criminal Justice System

The rule of law in Afghanistan still requires significant investment and support by national and international stakeholders.22 Although in the last ten years much has been accomplished and the justice system has been reanimated, specific areas such as prisons, juvenile justice, anti‐corruption, and the overall capacity of criminal justice sector need further improvement and sustainability. The justice institutions of Afghanistan (the Supreme Court, the Attorney General’s Office, the Ministries of Justice and Interior, and the High Office of Oversight and Anti‐Corruption) face the same challenges as the rest of the government, i.e. poor infrastructure, lack of professional staffing, and perceived corruption, as well as a lack of independence from the executive branch of the government.

21 A ‘concentrated’ HIV epidemic is defined as HIV prevalence is above 5% in at‐least one at‐risk population. 22 An interesting analysis of the justice system in Afghanistan is contained in “Reforming Afghanistan’s Broken Judiciary”, ICG, Asia Report No 195. November 2010.


22

Corruption at the local and national level is perceived to be widespread, and is considered to go unchecked, despite the efforts of the Government. As a result, many Afghans avoided contacts with Government and, particularly in rural areas, used traditional institutions of informal justice such as jirga, maraka, and shura.23 The drug profits are used in a near regulatory manner to conclude power deals, patronage, and forge alliances thereby further weakening the efficiency of the state to deliver its services to those most in need, furthering the interest of few, thereby alienating the wider population and weakening the resistance against the insurgency. Those appointed to uphold the law get the most severe moral indictment by the 2010 UNODC Corruption survey respondents: 25 per cent of Afghans had to pay a bribe to police officers over the past year, 18 per cent had to bribe a judge, and 13 per cent a prosecutor. Improvements in other part of the criminal justice system such as Afghan National Police (ANP) and the judiciary have contributed to a further increase in the number of the accused and convicted in detention and prison settings. These increased numbers places a burden of the ability of these prisons to house prisoners humanely and in line with international standards. In 2001, there were only 600 prisoners nationwide. Official figures from November 2011 revealed that the Central Prison Department housed almost 22,000

23 UN Human Development Report UNDP 2008 Relation between formal and informal justice system. Bernard Rubin.Ali Wardak, “Building a Post‐War Justice System in Afghanistan”, 2004, University of Glamorgan. See also: Antonio Giustozzi and Christoph Reuter, The Insurgents of the Afghan North; Afghanistan Analyst Network Thematic Report 04/2011

sentenced prisoners and un‐sentenced detainees, including 597 women and 281 dependent children. This increase in the prison population exacerbates an already overcrowded system that was designed for 10,000 prisoners. UNODC analysis of the trend of imprisonment indicates that at the current growth rate, the prison population will reach approximately 40,000 people five years from now, a situation hardly sustainable from financial, institutional, security, health and fairness perspectives. Prison reform is important, as prisons constitute a critical component of any effort to establish the rule of law and a weakened prison system undermines the integrity of the rule of law. Juvenile Justice As of August 2011, there were over 897 children in conflict with the law in Afghanistan, representing 114 girls and 783 boys. This number represents nearly a 50% increase from the 455 juveniles who were reported as being detained in January 2008. The youth are held in 31 provincial Juvenile Rehabilitation Centres (JRC) across Afghanistan and range in ages from 12 ‐ 18 years old. Twenty nine of these facilities are located in rented properties which were not designed to house juveniles and do not have the physical accommodations for them to engage in recreational and other activities typically associated with children and youth. This scenario is exacerbated by a lack of essential services such as medical, educational and vocational training that will benefit these children and facilitate their transition back to their families.


23

In addition, with the exception of Kabul, girls are frequently housed in areas of these JRCs (often a small room) that severely restrict their ability to play and engage in activities that are critical for their social, emotional and physical development. Despite these factors, children continues to be placed in detention at high rates for behaviors which, based on international standards, should not be considered criminal offences. For example a large proportion of girls are

prosecuted and imprisoned for “home escape” (running away from home) despite it not be a crime pursuant to the Juvenile Code. Afghanistan still requires substantial assistance to comply with its international obligation to safeguard the rights of the child as outlined in the most recent report of Committee on the Rights of the Child.


2. OPERATIONAL CONTEXT

2.1 Operational capacity in Afghanistan

The United Nations Office on Drugs and Crime is a global leader in the fight against illicit drugs, transnational organized crime, terrorism and corruption. As an organization with significant institutional memory on the issues related to drugs and crime, UNODC is here to support the Afghan people and Afghan Government to address effectively the drug control and crime issues in the country, thereby achieving security and stability. UNODC has a strong presence and a long history of partnership with the government of Afghanistan and specialized expertise in areas such as law enforcement, criminal justice, drug demand reduction, HIV/AIDS among drug users and alternative livelihoods. UNODC is offering a strong coordination platform to enhance operational planning and facilitation, and is uniquely placed to provide that support.

24

As a spin‐off of the Regional Office in South West Asia, based in Islamabad (Pakistan), in 1989 UNODC opened a satellite office in Peshawar (Pakistan) to carry out cross‐border operations in Afghanistan. The Office of the Representative was established in Kabul in 1991 while the project office remained in Peshawar. Due to security concerns and civil war, the office was again relocated to Islamabad, Pakistan in 1992. With the fall of the Taliban regime in 2001 and the establishment of the Afghan Interim Government following the Bonn Agreement, the country office was reopened in Kabul, Afghanistan in 2002.

UNODC is the guardian of the United Nations Convention against Corruption; the International Drug Control conventions; the universal treaties on counter‐terrorism; the United Nations Convention against Transnational Organized Crime and its three protocols ‐ against human trafficking, smuggling of migrants and the trafficking of firearms. The Country Programme has been designed to provide technical assistance to the country based on these legal instruments in order to strengthen its institutions in compliance with the international provisions.24 UNODC's activities are closely coordinated within the United Nations Assistance Mission in Afghanistan (UNAMA).

The overall volume of the Country Programme continues to show a steady increase over the past years. Annual delivery was US$ 0.9 million in 2002, US$ 7 million in 2004, US$ 13 million in 2007 and US$ 22 million in 2011 (accounting for roughly 10% of the UNODC total). The doubling of the portfolio in less than 5 years time and the increasing implementation rate were realised despite the deteriorating security situation. The total budget of the Country Programme 2012‐14 is around US$ 115 million, or between US$ 35‐40 million per year.

2.2. Geographical Approach

UNODC uses a geographic model to guide its assistance to Afghanistan. Interventions are by preference designed locally, but local impact is increased when tied to national and regional interventions.

24 For a more comprehensive list of conventions under UNODC’s mandate, see ANNEX 1.


At the local and provincial level UNODC aims to promote the roll‐out of services to provinces, thereby consolidating progress in opium reduction and the rule of law. At the national level UNODC supports line ministries and national institutions by providing international standards and norms as well as undisputed research and analysis on drug and crime issues for policy making. At the regional level UNODC uses its status as a UN body, its neutrality and its international network of country offices within a very complex political arena, seeking convergence of interests among divergent regional partners.

The Triangular Initiative, includes Afghanistan, Iran and Pakistan, and is part of the Rainbow Strategy. The initiative was launched by policy‐makers from the three countries in Vienna in June 2007 and is facilitated by UNODC. A Joint Planning Cell has been established in Tehran for information and intelligence sharing and the implementation of joint operations targeting drug trafficking networks operating in the region. Moreover, Afghanistan, Iran and Pakistan have identified strategic locations to place Border Liaison Offices at their common borders to improve information exchange and ensure a concerted inter‐agency and cross‐border response against drugs and precursor trafficking.

Over the last four years, the Triangular Initiative has made considerable progress in tackling the challenges posed by the cultivation and trafficking of illicit drugs originating from Afghanistan. Since 2009, there have been a number of achievements, including 12 joint or simultaneous drug control operations conducted and coordinated by the Joint Planning Cell. These actions have resulted in the seizures of several tons of illicit drugs and the arrest of many drug traffickers.

a) Paris Pact The Paris Pact Initiative, a partnership of more than 50 countries and international organizations, is aimed at combating Afghan opiates trafficking, consumption and related problems in the affected priority countries along the Afghan opiates trafficking routes. The illicit production of opiates in Afghanistan still represents a severe threat to the country itself, to neighbouring countries and to all transit and consumption countries along the main trafficking routes. Cooperation at the international level is essential to fight the illicit drug trade.

At the Ministerial Conference on Drug Routes from Central Asia to Europe held in Paris in May 2003 (Paris Statement), the international community subscribed to the principle of shared responsibility in the fight against opium and heroin trafficking from Afghanistan. The commitment became known as the “Paris Pact”, focussing on enhanced border control and law enforcement among countries affected by

the trafficking of opiates from Afghanistan. A second Ministerial Conference on Drug Trafficking Routes from Afghanistan was held in Moscow on 26‐28 June 2006 (Moscow Statement), which further promoted the Paris Pact process and recommended effective countermeasures against drug trafficking from Afghanistan. A third Ministerial Conference of the Paris Pact was held in Vienna 16 February 2012. Ministerial Conference participants discussed four main areas in which Paris Pact partners agreed

cooperation should be strengthened along the following areas: regional initiatives; financial flows linked to illicit traffic in opiates; preventing the diversion of precursor chemicals; and reducing drug abuse and dependence.

In 2007, within the framework of the Paris Pact Initiative, UNODC developed a regional

25

https://www.paris-pact.net/upload/cecd9d323ae80a1fe398257ccb6ac4d5.pdf

https://www.paris-pact.net/upload/7046a60f8f06037b49b312c3fa1e9e94.pdf

https://www.paris-pact.net/upload/7046a60f8f06037b49b312c3fa1e9e94.pdf


approach to the reduce the supply, trafficking and consumption of Afghan opiates. This regional approach called the Rainbow Strategy acknowledged that local problems demand a regional solution, and therefore engages both Afghanistan and its neighbouring countries in border management, cross‐border cooperation, development of intelligence capacities, precursors chemical control, interdiction of drug related financial flows, drug demand reduction and HIV/AIDS prevention. The Rainbow Strategy since 2007 and, subsequently, the Regional Programme for Afghanistan and Neighbouring Countries as of December 2011, aim to translate Paris Pact recommendations related to Afghanistan and neighbouring countries into action.

b) Regional Programme for Afghanistan and Neighbouring Countries While UNODC’s Country Programmes build capacity at the national level, the Regional Programme for Afghanistan and Neighbouring Countries aims to strengthen linkages between various ongoing counter FIGURE .‐ IV

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narcotics activities at the country and global levels to bring improvement in operational results by beneficiary agencies across the region. The outcomes of the Regional Programme can only be achieved through support of the country and sub‐regional assistance. The concept of shared responsibility is fully embedded in UNODC’s Regional Programme for Afghanistan and Neighbouring Countries (2011‐2014). The Regional Programme aims to complement and further expand interventions that have been designed in support of implementation of the Rainbow Strategy and address additional priorities, e.g. judicial cooperation, as identified by Member States. The Regional Programme will place emphasis on cross‐border and regional activities and does not supersede national responses and capacity building programmes which represent the foundations of UNODC work in the region. The regional programme is structured around four sub‐programmes. Figure IV gives an overview of the interaction between the Regional Programme and the different country programmes.

CP Pakistan

CP Afghanistan

Sub‐Regional

Programme Central Asia

CP Iran

Regional Programme for Afghanistan and Neighbouring Countries 2011‐2014

http://www.unodc.org/unodc/en/regional/central-asia.html#pp

http://www.unodc.org/unodc/en/regional/central-asia.html#pp


2.3 Office structure

The UNODC Country Office for Afghanistan is situated in Kabul and in five key provinces (Balkh, Badakshan, Herat, Kandahar and Nangarhar) to ensure local outreach and geographic coverage. The setting may be downscaled depending on security and budget availability. FIGURE.‐ V

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UNODC’s regional offices in Afghanistan

The Regional Representative of UNODC in Afghanistan leads the Country Office in Afghanistan, oversees the Regional Programme for Afghanistan and Neigh‐bouring Countries and acts as Special Advisor to the Special Representative of the Secretary‐General and Head of UNAMA. (see FIGURE.‐ V)

2.4 Security Concerns

Afghanistan is a particularly challenging development environment for UNODC. The elements that make opium cultivation flourish also make it difficult for UNODC to operate. The deteriorating security situation is having an impact on implementation in

consideration to the limitations, challenges and costs posed by the deteriorating security situation when designing and implementing new projects. The UN security revisited most of its own security measures in light of the attack on a UN guesthouse in Kabul (October 2009) and the more recent incidents at the UN


28

compound in Herat (October 2010) in Mazar‐e‐Sharif (April 2011) and Kandahar (November 2011). As a result of these incidents, UNODC security related costs have increased dramatically, necessitating an appeal to the community of donors to increase their support to UNODC operational costs as well as forcing UNODC, together with other agencies, to look for innovative ways of implementation. The fact that almost all of Afghanistan’s problems are directly or indirectly related to the drug economy, endemic corruption and a lack of law enforcement and criminal justice means that, through its mandate, UNODC continues to have an essential role to play in Afghanistan. UNODC in Afghanistan has its headquarters in Kabul and 5 provincials offices, in Kandahar, Herat, Mazar, Faizabad and Jelalabad. All are classified as category A facilities requiring maximum protection. It is estimated that security costs25 for 2012‐2014 will be approximately 10,5 million USD, or close to 9 % of the total budget for this Country Programme. UNODC in Afghanistan will allocate 10 % of all donations for security. Since the budget foresees 9 % for security, the last 1 % is a contingency allotment which is kept aside in case of emergencies and it is re‐channeled to the project activities each end of year/or carried forward if not utilized [annex 5].

25 Security Costs are defined as: direct costs associated with acquisition of goods and services needed to ensure a secure environment for programme activities to be carried out in a high risk locations. They are duplicative of neither other budgeted activities nor of programme support cost (which covers indirect costs).

2.5 Programmatic Context

In order to develop this Country Programme, UNODC has undertaken a thorough review of its evaluation recommendations and lessons recorded in the last ten years, in conjunction with the main national counterparts and donors. While discussing this chapeau document mainly with the Ministry of Counter Narcotics, UNODC has been having regular consultations with each of the other partner institutions and line ministries. The consultations with the technical staff of the line ministries on the sub‐programmes took place during 2011. In December 2011 the Ministers of Interior, Health, Counter‐Narcotics and Justice (including Supreme Court, AGO, HOO) were approached to provide the final comments. Most of the priority setting accounts for previous assessments and evidence carried out by UNODC or other organizations. The identification of the needs, challenges and feasible targets outlined in the document is the result of a collective thinking and a long integrated programming which started in 2010. This Programme fits into the programmatic framework of Afghanistan as an international theatre including several strategic documents outlined below. The United Nations Development Assistance Framework (UNDAF 2010‐2013) is the key programmatic document guiding UN involvement in Afghanistan. The Afghan National Development Strategy focuses on three priority areas, namely:

(I) Governance, Peace and Stability


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(II) Sustainable Livelihoods: Agriculture, Food Security and Income Opportunities

(III) Basic Social Services: Education, Health, Water and Sanitation

The priority areas are underpinned by cross‐cutting issues such as human rights, gender equality, environment, mine action and counter‐narcotics. Through this strategic framework, the UN plans to deliver over USD 4 billion in assistance in the years 2010 to 2013. The UNDAF process is monitored continuously, based on indicators at the outcome and output levels. Through annual reviews with the Government and other counterparts, UN programmes are adjusted to ensure the best possible fit with the evolving situation and optimum impact. This country programme is aligned with the UNDAF and UNODC seeks to contribute in various ways to the priorities and cross cutting issues through the outcomes and outputs of this country programme. The mid‐term review of the UNDAF is scheduled in April 2012 and the new Country Common Assessment will also be undertaken in 2012 to guide the drafting of the 2014‐2018 UNDAF. The UNODC COAFG will actively engage with the process at all stages.

The United Nations Integrated Strategic Framework is the answer to the call for more unified UN assistance to Afghanistan in the light of the Kabul Process. 26 It is the UN

26 The Kabul process of transition is broadly defined by the United Nations as the gradual transition to Afghan ownership and leadership in security, development and governance coupled with the furtherance of an inclusive political process, as agreed with key stakeholders and envisaged in events including the London and Kabul conferences and Consultative Peace Jirga that were held in 2010.

equivalent to the strategic partnership paper prepared by NATO/ISAF. The core of UN efforts in Afghanistan will be focussed on supporting the Government of Afghanistan’s leadership and ownership of its political and developmental processes.

The overarching goal of the UN Integrated Strategic Framework will be to promote the principle of ‘Delivering as one’ that is integral in ensuring the system’s mandated roles and activities remain consistent with the vision and priorities of the Government of Afghanistan.

Five priorities for integrated action have been selected to guide UN system‐wide coherence and encourage greater synergies in programme design and implementation;

(I) Peace, reconciliation and reintegration

(II) Human rights

(III) Governance and rule of law

(IV) Maternal and newborn health

(V) Sustainable livelihoods.

'Delivering as one' that is to say 'exploiting internal and external synergies' is one of the key guiding principles of this country programme and is an important consideration with regard to the implementation of this country programme. In practical terms, this means that UNODC will cooperate closely with other UN agencies towards the stated outputs, outcomes and activities, both in Kabul and in the provinces. Through the implementation of this country programme UNODC aims to contribute to the stated priorities for integrated action, in accordance with its mandate and the adopted focus.


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Risk Assessment and Mitigation

The period for this programme (2012‐14) is the interval where Afghanistan will take over the responsibility for security of the country, as the international military gradually pulls out. The coming years are of immense importance for the future, but it is also a time where it is difficult to predict in which directions the transition will take Afghanistan. The transition brings up questions related to security, political stability, donors’ engagement, prospect of progress in regional cooperation, Afghan absorption of capacity, sustainability of UN interventions etc.

This programme will be delivered in precarious and volatile security conditions. The level of violence has increased in Afghanistan over the last few years and this trend is expected to continue. The donors’ engagement is expected to shift and possibly to decline whereas the political developments leading to 2014 are unpredictable. Moreover, with the increasing level of overseas development aid being channelled through the Afghan institutions the absorption capacity is challenged. The below table accounts for more of these factors and outlines some measures to mitigate the risks and implications.

Risk Management

Risk Mitigation

Identification Likelihood Impact Risk Mitigation Strategy

Risk 1: Deterioration of the security situation in the country (UNODC will leave Afghanistan)

Low High

Ensure flexible arrangements for staff and accommodations. Consider relocation of staff from selected locations or evacuation of staff, in coordination with UNDSS. Maintain 10% of budget for security also for this eventuality.

Risk 2: Deterioration of the security situation in Kabul or selected provinces (UNODC will have limited ability to move in Kabul/Afghanistan)

Medium Medium

Use of UNODC offices for training and meetings. Use of local staff or trained national counterparts for travel to the provinces will increase. Increase use of grants and subcontracts to local civil society organizations.

Risk 3: Harassment of UN affiliated national staff

Medium Medium Security training for all UNODC staff in Afghanistan.

Risk 4: Lack of/declining support from Government counterparts

Medium Medium

Involve government counterparts in setting strategic focus to secure smooth cooperation (Programme Steering Committee and Sub‐Programme Technical Committee); if government changes/re‐shuffles, engage immediately with new appointed ministers/focal points.

Risk 5: Unwillingness of government to share the costs of implementing programmes

Medium Medium Ongoing dialogue with the government (technical and political level) to ensure cooperation and support to UNODC


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programmes.

Risk 6: Government counterparts rely more on technical assistance and expertise provided by other external bodies over UNODC

Low Medium

Ensure that UNODC programmes are developed in full consultation with national counterparts and benefit to Afghanistan is apparent.

Risk 7: Reduced international resources as transition move forward

Low Medium

Ongoing dialogue with key donors. High quality of programme implementation and excellent reporting mechanisms. The CP is designed to accomplish outcomes/outputs which can be flexible, and if necessary reduced.

Risk 8: Critical absorption capacity of Afghan counterparts

Medium High

Ensure appropriate planning to secure feasibility. Foresee gradual transfer of responsibilities and resources with support and quality control monitoring.

Risk 9: Human rights violations by counterparts of UNODC (law enforcement, prison, drug service centres etc.)

Medium Medium

Include a human rights component in all training; Take immediate steps , as required by UNODC’s Guidance Note on Human Rights, if human rights violations are reported.

Risk 10: Increase use of grants and subcontracts to local civil society organizations due to deterioration of the security situation will make monitoring more challenging.

Medium Low Train civil society organisations in monitoring and follow up on implementation very closely.

2.6 Guiding Principles

There are six guiding principles for UNODC in Afghanistan:

• Ownership and sustainability – Afghanization of national drug and crime responses through genuine capacity building of the key national stakeholders

• Subsidiarity – Interplay between local, national and regional dimensions

• Exploiting internal and external synergies – Enabling partnerships and maximizing impact

• Impact‐oriented effective aid – countering corruption

• Reaching out to vulnerable populations

• Promotion of human rights and gender sensitive actions

The UNODC strategic approach is also guided by the core principles of the Paris Declaration on Aid Effectiveness and the Accra Agenda for Action related to the evaluation of aid effectiveness.

2.7 Gender and Human Rights

Human rights are at the core of all work of the UN system and – together with peace and security and development – represent one of the three, interlinked and mutually reinforcing, pillars of the United Nations. UNODC is in the unique position of working across all three pillars in its efforts against


crime, drugs and terrorism and in supporting Member States to deliver a safe society founded on the rule of law. A key component of UNODC’s work on the rule of law is its specific mandate to encourage adoption of the United Nations standards and norms in crime prevention and criminal justice. Bearing in mind the centrality of human rights to the aims of the United Nations and to the work of UNODC globally, UNODC Afghanistan always aims to maximize the positive human rights impact of its work. Human rights perspectives are always taken into account while planning its programmes.

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In March 2002, the Security Council, in its resolution 1401, established the United Nations Assistance Mission to Afghanistan (UNAMA). UNAMA is a political mission established by the Security Council in 2002 at the request of the Government to assist it and the people of Afghanistan in laying the foundations for sustainable peace and development in the country. The mandate is renewed annually and recognizes the critical importance of monitoring and coordination of efforts to protect civilians and support wider human rights, in particular the rights of women and children. In addition, UNAMA works hand‐in‐hand with United Nations agencies, funds and programmes providing a wide range of humanitarian support to the Afghan people as well as policy and programme support to various Government Ministries on development matters.

Afghanistan presents different and sometimes difficult challenges especially with regard to gender issues. Gender and human rights groups have been consulted during the planning stage of this sub‐programme document. Gender and Human rights perspectives and concerns are integral elements that permeate this Country Programme.

2.8 Partnerships

UNODC does not have the resources to address the entire range of factors causing narcotics and judicial challenges in Afghanistan. Through partnerships UNODC seeks to maximise its impact by sharing its knowledge and experience in the fields of counter‐narcotics and judicial reform in order to promote successful policies and to achieve long term results. In line with the aforementioned UN Integrated Strategic Framework, UNODC will continue to work in collaboration with the other UN agencies active in Afghanistan. Given related mandates and programmes, effective collaboration with UNIDO, WFP and

FAO (alternative livelihoods), IOM (construction), UNAIDS (drug demand reduction and HIV/AIDS), WHO (drug demand reduction and HIV/AIDS) UNWomen (gender), UNICEF and UNDP will continue to be very important.

UNODC will continue to actively engage in the UNDAF process to support the UN’s ‘Delivering as One’ objectives. With regard to the partnership with DPKO and UNAMA, UNODC has set up the UN Task Force on Transnational Organized Crime and Drug Trafficking as Threats to Security and Stability, in close collaboration with the SRSG office and Resident Coordinator's Office. The aim of the Task Force is to develop an effective and comprehensive approach to the challenge of transnational organized crime posed by trafficking of opiates. The Task


33

Force will also promote a comprehensive and balanced framework focusing on prevention, the rule of law, regional and inter‐regional cooperation, shared responsibility, local and national capacity and institution building, public health and the protection of human rights. The Task Force is chaired by the Special Representative of the Secretary General (SRSG) in Afghanistan and will have two deputy chairs – UNODC Representative in Afghanistan and Deputy SRSG. The Task Force includes UNICEF, UN Women, UNDP, OHCHR, UNDSS, UNAMA Joint Analysis and Policy Unit, UN Resident Coordinator’s Office, IMF, UNAMA Rule of Law Office and World Bank. The Task Force will have a sub‐working group that will include UNAMA Joint Analysis and Policy Unit, UNDSS and UNODC Research, Advocacy and Policy Unit. 27

27 The Task Force will meet quarterly and will report to HQ through code cables. The Task Force will focus inter alia on:

• Brief on progress made by technical agencies working on related issues, such as rule of law, governance, security sector reform, anti‐corruption, human rights etc;

• Closely monitor the progress made on the mainstreaming of counter‐narcotics within the National Priority Programmes;

• Formulate policy recommendations on transnational organized crime for the UN in

Afghanistan.

There are many other active development partners in Afghanistan who are supporting initiatives relevant to UNODC mandates and planned programme of work. The World Bank, Asian Development Bank and European Union are key multi‐lateral players. Following the principle of international shared responsibility UNDOC is actively pursuing a widening of ownership within the region and beyond this.


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3. PROGRAMME DESCRIPTION

3.1 Introduction

The driving principle of UNODC’s work in Afghanistan and in this programme is ‘a world safer from the threats posed by organised crime, drug use and terrorism’. In order to support this vision, it is proposed that UNODC’s support in Afghanistan is focused on four (interdependent) areas of work including a cross cutting element, mirroring the structure and focus of the Regional Programme for Afghanistan and Neighbouring Countries, namely:

• Research, Policy and Advocacy

• Law Enforcement

• Criminal Justice

• Health and Livelihoods The Figure.‐ VI provides a schematic overview of the broad scope of each of these four ‘sub‐programmes’. This figure profiles the expected ‘outcomes’ to which UNODC will contribute. Achieving the outcomes presented in this Country Programme primarily depends on the GoIRA and the efforts of its agencies.

The UNODC role is to support the GoIRA in achieving these outcomes by delivering a range of capacity‐building ‘outputs’ and activities. UNODC is thus responsible and accountable for the quality of its support services, and demonstrating that they contribute to agreed outcomes. Attached to this CP is a Results and Monitoring Framework (Annex 2). This outlines, for every outcome, the type of outputs that UNODC will support to deliver in partnership with GoIRA and other stakeholders. The Results and Monitoring Framework also includes proposed performance indicators and information sources to help both GoIRA and UNODC monitor and evaluate progress. The following sub‐sections of the CP provide a description of the scope of each proposed sub‐programme and an overview of the associated outcomes, outputs and activities.


FIGURE.‐ VI Broad scope of Country Programme

SUB – PROGRAMME 1Research, Policy, Advocacy

National illicit crop monitoring system strengthened (F98)

OUTC

OMES

35

Increased access to quality drug prevention, treatment and rehabilitation services

SUB – PROGRAMME 2 Law Enforcement

SUB – PROGRAMME 3 Criminal Justice

SUB – PROGRAMME 4 Health and Livelihoods

Building Afghan Counter Narcotics Analytical Capacity for Evidence‐Based Policy and Advocacy (U04)

Afghan capacity for delivery of counter‐narcotics responses

developed (K65)

Afghan authorities reform criminal justice system in line with international standards

and norms

Anti‐corruption measures strengthened in line with

UNCAC

Prison system reformed in line with international standards and norms, with an emphasis on

alternatives to imprisonment and pre‐trial detention

Operational capacity of the Counter Narcotics Police of Afghanistan developed in the areas of training, intelligence, mobile

detection teams, forensics and precursor control

Wider coverage of alternative livelihoods for drug affected

communities

Increased access to quality HIV/AIDS prevention,

treatment and care services, focused on IDUs, prisoners and persons vulnerable to

human traffickingEnhanced border law enforcement, including regional cross border

cooperation

OUTC

OMES


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3.2 Sub‐Programme 1: Research, Policy and Advocacy

Accurate and credible data are essential for evidence based policy, as an advocacy and mobilizing tool, and as benchmarks to review progress made by the diverse stakeholders. UNODC has built a strong research reputation through its opium, cannabis and drug addiction surveys, its provincial profiles and socio‐economic assessments, as well as through studies on the impact of CN public awareness campaigns, criminal justice system and corruption surveys, conducted in partnership with the MCN, MoI, MoPH, MoJ, and HOO among others. Considering the high demand for reliable data that meets international standards and that can underwrite accurate benchmarking and policy setting, UNODC in partnership with the Government, especially MCN, will continue its crop monitoring surveys and research programmes and further broaden them in two ways: by expanding the spectrum of subject areas and, most importantly, by creating the data collection and analytical capacity of its government partners, thus contributing to the Afghanization process. In particular, UNODC intends to build MCN's capacity for systematic crop monitoring surveys, research and analysis on CN related issues including crime related indicators. This support is in line with the Ministry’s renewed strategic and coordinating responsibility to facilitate evidence‐based policy and decision making.

In addition to its role in CN research and information, UNODC intends to play an important function in guiding the GoIRA in advocacy and policy advice aimed at mainstreaming and monitoring CN and CJ indicators. These efforts contribute also to

the coordination of the different stakeholders, national and international, towards the joint objectives. In particular, UNODC has been providing technical underpinned policy advice on a series of issues under its mandated areas of work. In this connection, it has been requested by the Government and international partners to play an important coordination role and to promote inter‐agency collaboration in areas such as legal reform, border management, CN mainstreaming in sustainable livelihoods, prison reform and assistance to vulnerable groups (women, children, drug addicts, HIV‐positive prisoners and prisoners with special needs) among others.

Some significant areas of advocacy work directed both to the policy settings as well as general public are prison reform, CN mainstreaming, and protection and special care of vulnerable groups. In policy and legislative settings related to prison reform, UNODC promotes alternatives to imprisonment as a measure helping to reduce the number of prisoners in pre‐trial detention and the improvement of the prison management, and strives to introduce social reintegration mechanisms (women’s post release housing, vocational training, special populations such as juveniles and those with special needs); UNODC also mobilizes advocacy efforts with national and international stakeholders and advise the GoIRA on the transfer back of responsibility for prisons from MoJ to MoI.

Another prominent case in point is the genuine CN mainstreaming. In fact, over recent years, CN has lost its appeal among both national and international stakeholders. It has neither been retained as one of the 22 national Priority Programs nor included


37

among the 6 priorities of the MoI to which the Counter Narcotic Police of Afghanistan (CNPA) reports. The Afghan National Development Strategy defined CN as a “cross cutting issue”28, yet key stakeholders have gradually reduced their support for CN to only paying political lip‐service. Against this background, UNODC is advising MCN in its attempts to mainstream and resolve two significant challenges. Firstly, the MCN needs to enhance its technical and institutional capacity to effectively work with cluster Ministries to incorporate CN in the NPP design and planning phase. Secondly, the MCN needs to strengthen its operational capacity for CN delivery during NPP implementation.29

While the perceptions are that CN has been on a positive track since 2008, the risk is to dangerously underestimate the eroding effect of the illicit narcotic business on the aid currently provided and the Transition process. In fact, corruption is hindering state building efforts by contributing to production of narcotics, trafficking and insurgency. With the NPP and the transition process picking up the pace, it is urgent that CN is considered a national priority, particularly a cross‐cutting one, by national, regional and international stakeholders. Within the scope of this sub‐programme, UNODC will advocate the genuine mainstreaming of counter‐narcotics,

28 “Mainstreaming Counter Narcotics into the Government of the Islamic Republic of Afghanistan’s Five ‘Clusters’”, January 2010, IRoA, Ministry of Counter Narcotics, Policy and Coordination General Directorate. 29 Idem ‐ While the institutional weaknesses within the MCN are slowly being corrected, the NPP process has moved on, funding being allocated to it, whereas the CN still does not benefit from the attention due. For example, MCN does not currently have the ability to carry out baseline research on CN issue at the provincial level for lack of equipment, supplies, and manpower.

as well as crime and terrorism prevention in Afghanistan in all the relevant policy fields. UNODC in partnership with MCN and other national and international partners will work with a view to tackling the challenges posed by the increasing crime as well as narco economy with a comprehensive approach, embedding rule of law, criminal justice and alternative opportunities.

Through advocacy and policy influence within GoIRA and the international community, UNODC offers a much broader and comprehensive package of support and technical advisory services, connecting research to its real application, leading to a significant impact. UNODC views research, policy and advocacy as a continuum and is committed to partner with the national counterparts as well as to engage with the international community for the furthering of global good practices and international standards.

Additionally, UNODC will also support the efforts of the Ministry of Counter Narcotics and other lines ministries, in primis the Ministry of Justice, to build its capacity at both central and provincial level to deliver on its mandate and coordinate the efforts of relevant actors. Key implementing Partners

The Ministry of Counter Narcotics (MCN) is the key government organ responsible for developing counter narcotics policy. Since its establishment in early 200530, the MCN has been responsible for coordination, evaluation and implementation of the Afghanistan Counter Narcotics Law and the National

30 The Ministry of Counter Narcotics is the successor of the Counter Narcotics Directorate (CND)


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Drugs Control Strategy (NDCS) as well as policy guidance and CN mainstreaming within the relevant GoIRA Ministries and organizations. UNODC has been playing a strong supporting role in capacity building and providing evidence‐based policy advice and will continue to do so under sub‐programme 1.

The Ministry of the Interior (MoI) is the line ministry responsible for the various law enforcement agencies which are tasked with the seizure of narcotics and precursor chemicals. The Afghan National Police, the Counter Narcotics Police of Afghanistan, the Afghan Border Police and the Counter‐Narcotics Task Force all operate under the auspices of the MoI.

The Ministry of Justice (MoJ) is responsible for upholding the rule of law in Afghanistan and is responsible for many of the government’s judicial affairs. The MoJ functions in a number of areas, including policy formulation, regulation, performance‐monitoring, supervision and coordination, as well as in delivering legal services and support to others in the government and the public.

At the International Conference on Afghanistan (Bonn, 2001), the United Kingdom was given the responsibility of G8 lead nation on Counter Narcotics. When the responsibilities of the lead nations transferred to GoIRA in 2006, the UK adopted the role of partner nation on Counter Narcotics. Currently, the UK remains a key player, both in the policy arena, where it supports the MCN, the counter‐narcotics Criminal Justice Task Force (CJTF) and UNODC and in the field, with its large military and aid

presence in Hilmand province, known as the Hilmand Food Zone. The United States of America is also a key player in the field of CN, with its strong military and civilian presence all over Afghanistan and especially in the southern provinces. The US also has a leading role within the aid community. Various US agencies are currently active in various fields relating to CN, including State Department, the DEA, the military and USAID.

Other important partners include: Central Statistics Office (CSO), National Assembly, Ministry of Public Health, Independent Directorate for Local Governance, Ministry of Hajj and Religious Affairs, Ministry of Information and Culture, Ministry of Rehabilitation and Rural Development and the Ministry of Agriculture, Irrigation and Livestock, and various civil society organisations and NGOs.

National Priorities and Frameworks

The GoIRA has developed a National Drug Control Strategy (NDCS) containing CN policy goals and priorities. The first NDCS was launched in May 2003, and revised in 2005 to cover the period 2006‐2010. As of late 2010, the MCN has been updating the NDCS and related benchmarks for the post‐2010 period. The overarching objective of the NDCS is to secure a sustainable decrease in cultivation, production, trafficking and consumption of illicit drugs with a view to completing and sustaining elimination of the illicit narcotics trade in Afghanistan. In order to reach this objective, the NDCS outlines four priorities: 1) Disrupting the drug trade by targeting traffickers and their backers; 2) Strengthening and diversifying legal rural

http://www.cjtf.gov.af/


39

livelihoods; 3) Reducing the demand for illicit drugs and improved treatment of problem drug users; 4) Developing state institutions at the central and provincial level vital to the delivery of our CN strategy31. As envisioned by the MCN Strategic Plan (June 2010), the three key functions of the Ministry are: policy; coordination and monitoring; and evaluation (survey and research).32

In the forthcoming version of the NDCS, cross‐cutting issues will also be prioritised and will include: Public Awareness, Governance, Regional and International Cooperation and Capacity and Institutional Building.

31 Based on these priorities, the NDCS identifies a further eight pillars (activity areas):

(I) Public Awareness: Inform, educate, deter and dissuade the population from involvement in the illicit drugs trade, cultivation of opium and abuse of opiates.

(II) International & Regional Cooperation: Disrupt the flow of illicit drugs and precursor materials across borders.

(III) Alternative Livelihoods: Strengthen and diversify ‘alternative livelihoods’ that free farmers and other rural workers from dependence on opium cultivation and encourages growth of the licit economy.

(IV) Demand Reduction: Reduce Afghan demand for drugs and offer addicts treatment.

(V) Law Enforcement: Establish institutional capacity to increase drug trafficking risk through law enforcement.

(VI) Criminal Justice: Establish an effective criminal justice system that can support drug law enforcement.

(VII) Eradication: Build the capacity to conduct targeted and verified ground‐based eradication.

(VIII) Institution Building: Build CN institutions that provide for effective governance at the centre and in the provinces.

32 Strategic Plan, June 2010. Page 5 – 19.

Programme Delivery

Within this Sub‐Programme, UNODC aims to expand the scope of the illicit crop monitoring system by continuing to publish the annual opium poppy and cannabis surveys, data on illicit drugs prices and eradication verification monitoring reports (including work on eradication targeting). In line with the ‘Afghanization’ process, and to strengthening UNODC relations with the MCN, sub‐programme 1 intends to expand MCN capacity in illicit crop monitoring, to support its ability to promote public awareness on CN and CJ, and to develop a strong statistical and analytical team within the MCN. UNODC will also encourage evidence‐based policy and advocacy at the MCN, MoJ, MoI, among other relevant line ministries. It will strengthen the counterparts’ capacity, primarily their obligation to monitor and evaluate (survey and research), and consequently their functions to coordinate CN and crime prevention efforts with other line ministries and to deliver informed reports and policy on counter‐narcotics and crime and terrorism prevention in Afghanistan. One final outcome will be an Afghanistan Drug Report developed and produced by MCN. This report will detail the progress made on the NDCS against set benchmarks. A second envisaged report will be on crime trends. Additionally, the sub‐programme will work towards increasing the analytical capacity of UNODC across most thematic areas and will include the development of advocacy material on a broad number of thematic areas. The sub‐programme will strengthen the institutional and operational capacity of counterparts throughout the provinces of Afghanistan to ensure that CN and crime prevention policies, enshrined in the NDCS and in the Justice Strategy for example, can be effectively


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pursued in coordination with other Ministries, and national and international stakeholders throughout Afghanistan. Sub‐programme 1 is a cross‐cutting one, intended to complement, support and enhance the work of the interdependent sub‐programmes 2 to 4. It is reckoned that this sub‐programme will also contribute to the progress evaluation and review, as requested in the UNSC resolution on Afghanistan (UNSC/1974 – 2001).

This sub‐programme will include three components: a) Project AFG/F98 on crop monitoring; Component, b) Project AFG/U04 on Research and Advocacy; and Component, c) Capacity Building (AFG/K65) all will be registered as separate components under sub‐programme 1. (see FIGURE.‐ VII)

FIGURE.‐ VII Overview of Sub‐Programme 1

SUB – PROGRAMME 1RESEARCH, POLICY,

ADVOCACY

COMPO

NEN

TS*

OUTC

OMES

3. Afghan capacity for delivery of counter‐narcotics responses developed (K65)

3.2. Afghan national development strategies and programmes incorporate tangible counter‐narcotics responses

3.1 Government (MCN) institutional and operational capacity for drug control at central and provincial level developed

3.3. Increased capacity within MCN to develop counter‐narcotics policies and strategies and to coordinate multi‐stakeholder responses

2. Building Afghan Counter Narcotics Analytical Capacity for Evidence‐Based Policy and

Advocacy (U04)

2.2 MoI, MoJ and MCN share information needed to inform policy making and reporting, through permanent and streamlined processes

2.3 MCN and MoPH regularly coordinate and share information on treatment and drug demand reduction with a view to generate research, which will inform future policy making and reporting

2.2. MCN gradually takes ownership of the research and analytical skill sets in order to inform evidence‐based policy

1. National illicit crop monitoring system strengthened (F98)

1.1 Information on opium and cannabis trends and patterns used by the Government of Afghanistan and key stakeholders to formulate Afghan CN policy and strategy

1.4 National and international stakeholders make use of improved knowledge on impact of opium cultivation, trade and economics due to volatile changes in drug prices in Afghanistan and its neighbours

1.3 The Eradication Working Group in Kabul formulate immediate CN strategies using regularly‐updated information for reimbursement of eradication expenditure to provincial Governors based on area of eradicated poppy fields (verified through ground measurements and satellite checks)

1.5 National and international stakeholders make use of improved knowledge on impact of opium cultivation, trade and economics due to volatile changes in drug prices in Afghanistan and its neighbours

1.2 The Government of Afghanistan uses evidence on opium cultivation trends at the start of cultivation season (early warning function) to fine tune its counter narcotics strategies

2.4 MCN, MRRD and MAIL regularly coordinate and share information on cultivation, eradication and sustainable alternative livelihoods with a view to generate information and statistics, which will inform policy making and reporting

* Sub‐Programme 1 is a compilation of three components (projects). For a full list of outcomes and outputs, see next page.


Sub‐Programme 1: Outcomes and Outputs F98 Outcome 1: Information on opium and cannabis trends and patterns used by the Government of Afghanistan and key stakeholders to formulate Afghan CN policy and strategy

F98 Output 1.1: Area under opium poppy cultivation in all provinces using satellite remote sensing data and village survey analysed.

F98 Output 1.2: Information on opium yield and production estimates in all provinces collected

F98 Output 1.3: Area under cannabis cultivation in main provinces and cultivation trends in all provinces analysed.

F98 Outcome 2: The Government of Afghanistan uses evidence on opium cultivation trends at the start of cultivation season (early warning function) to fine tune its counter narcotics strategies

F98 Output 2.1: Report on cultivation trends of opium by province produced.

F98 Output 2.2: Reasons for increase/decrease of cultivation analysed.

F98 Output 2.3: Comparative analysis of the data collected with data from previous years available.

F98 Outcome 3: The Eradication Working Group in Kabul formulate immediate CN strategies using regularly‐updated information for reimbursement of eradication expenditure to provincial Governors based on area of eradicated poppy fields (verified through ground measurements and satellite checks).

F98 Output 3.1: Periodical publication and circulation of eradication figures in all provinces disseminated to major stakeholders.

F98 Outcome 4: National and international stakeholders make use of improved knowledge on impact of opium cultivation, trade and economics due to volatile changes in drug prices in Afghanistan and its neighbours.

F98 Output 4.1: Twelve monthly reports on the drug price monitoring to the national and international stake holders including the trend of the drug prices by region over the last 4‐5 years produced.

F98 Outcome 5: The Capacity of MCN strengthened through training and transfer of core project responsibilities to the MCN staff.

F98 Output 5.1: UNODC staff relocated to MCN by the end of 2011.

F98 Output 5.2: Training provided to the MCN staff on GIS/RS and field surveys.

F98 Output 5.3: MCN supported to produce the publication on surveys conducted.

U04 Outcome 1: MCN gradually takes ownership of the research and analytical skill sets in order to inform evidence‐based policy.

U04 Output 1.1: Develop a strong statistical and analytical team in the MCN which will initially work with the support of UNODC to generate research and information to monitor the NDCS is in place and collate and process data gathered from Outcome 2, 3 and 4, which will enable MCN to report progress made.

U04 Outcome 2: MoI, MoJ and MCN share information needed to inform policy making and reporting, through permanent and streamlined processes.

U04 Output 2.1: Develop a strong statistical and analytical team in the MoI, which will work under supervision of MCN, with the support of UNODC to generate research and information to monitor law enforcement activities, which will enable MCN to report on status and progress made.

U04 Output 2.2: Develop a strong statistical and analytical team in the MoJ, which will work under supervision of MCN, with the support of UNODC to generate research and information to monitor criminal justice activities, which will enable MCN to report on status and progress made.

U04 Output 2.3: Build and develop a capacity within the MCN which will centrally capture CN information from various ministries, civil servants, provincial directorates and actors on the ground.

U04 Outcome 3: MCN and MoPH regularly coordinate and share information on treatment and drug

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demand reduction with a view to generate research, which will inform future policy making and reporting.

U04 Output 3.1: Develop a strong statistical and analytical team in the MoPH, which will work under supervision of MCN, with the support of UNODC to generate research and information on national drug use, which will enable MCN to report on status and progress made.

U04 Outcome 4: MCN, MRRD and MAIL regularly coordinate and share information on cultivation, eradication and sustainable alternative livelihoods with a view to generate information and statistics, which will inform policy making and reporting.

U04 Output 4.1: Develop a strong statistical and analytical team in the MRRD, which will work under supervision of MCN, with the support of UNODC to generate research and information on alternative livelihoods, which will enable MCN to report on status and progress made.

Outcome 1: Afghan capacity for delivery of counter‐narcotics responses developed (Uxx)

Output 1.1: Government (MCN) institutional and operational capacity for drug control at central and provincial level developed.

Output 1.2: Afghan national development strategies and programmes incorporate tangible counter‐narcotics responses. Output 1.3: Increased capacity within MCN to develop counter‐narcotics policies and strategies and to coordinate multi‐stakeholder responses.

3.3 Sub‐Programme 2: Law Enforcement Capacity Building

Afghanistan faces tremendous drug and crime challenges that require effective responses. While over 90% of world’s opium comes from Afghanistan, only 2% is seized in the country. Along the borders of Afghanistan unimpeded movement of insurgents and massive illicit trade of drugs, precursor chemicals, money, people and weapons are proliferating. Increased support to the CNPA by international partners (including the UK/SOCA and training, mentoring, and investigative assistance by the US/DEA) has recently boosted operational successes. In fact, Afghanistan’s law enforcement agencies operate under enormously difficult circumstances and face tremendous hurdles in their everyday work. Opium cultivation is at the core of insecurity and instability, directly undermining the rule of law. Chemicals needed to convert opium into heroin, are not manufactured in Afghanistan. However, with most of the opium converted to

heroin within the country, these chemicals are trafficked into Afghanistan. Being a landlocked country, securing Afghanistan’s long border presents an extraordinary task, with the illegal flow of both goods and people challenging law enforcement. UNODC technical expertise and good practices are set in this challenging context. UNODC will engage in policy advice, with a view to raising the profile and priority of counter‐narcotics related law enforcement within the Ministry of Interior, as well as supporting the Deputy Minister of Interior in charge of CNPA to maintain the profile and relevance required. Moreover, a UNODC policy priority is to raise the awareness of national and international partners and to stress the civilian attitude of the counter‐narcotics enforcement as opposed to a pure militaristic one. In UNODC’s vision, CN capacity building consists not only of assisting the CNPA in

43


Kabul, but also in the field, thereby supporting the CNPA and increasing its effectiveness within selected provinces. UNODC will continue to facilitate training through the Counter Narcotics Training Academy in Kabul, working towards a standardization of training modules and mentoring schemes in coordination with the relevant partners, including utilizing computer based training. UNODC will also promote Afghanization in this area by training Afghan trainers and mentors. Targeting illicit financial flows linked to Afghan opiates trafficking, requires support to the recently established Financial Transactions and Reports Analysis Centre of Afghanistan within the framework of initiatives interconnected to the Regional Programme as well as the Paris Pact Initiative. Furthermore, additional assistance will be delivered to the forensic laboratory within the CNPA leading to better criminal case preparation and an increase in seizures of drugs and chemicals. Under this sub‐programme, UNODC will also provide technical support to relevant authorities' poppy eradication efforts (see also in connection to sub‐programme 1). Regarding border management, UNODC has assisted in the establishment of several border posts as well as selected Border Liaison Offices (BLO) ‐ specifically in Torkham and Islam Qala ‐ and plans to extend this technical assistance along the northern border. Nimroz and Badakhshan will be the priority provinces, as they represent crucial transit routes (and manufacturing hubs) within the Triangular Initiative and Sochi Process (Quadrilateral Process). Strengthening the Afghan Border Police is a key part of UNODC strategy to link

national capacity with regional operations. It includes cross‐pollination with the other sub‐programmes, and in particular with the livelihood component in that it includes community policing and support to community in working towards local security, as well as our efforts to build capacity within the criminal justice sector. Border management measures in Afghanistan also facilitate its engagement with the Joint Planning Cell (JPC) in Tehran within the framework of the Triangular Initiative and the Central Asia Regional Information and Coordination Centre (CARICC) in Almaty. An effective programme dealing with container control will contribute to the establishment of port control units as well as the coordination with the border management task force, inducing more effective inter‐agency coordination. UNODC will focus on Intelligence‐led Policing, by introducing a strategic, future‐oriented and targeted approach to crime control, through the Tactical Operations Centre within CNPA. Within the field of precursor control, UNODC worked for the establishment of the unique Precursor Control Unit, and enabled the Afghan participation in the UNODC led Targeted Anti‐Trafficking operation in the Region enhancing Communication, Expertise and Training (TARCET initiative). Support to these initiatives will continue under this CP. Key implementing partners

The Ministry of the Interior (MOI) is responsible for Afghanistan’s police forces, other internal security forces and Afghanistan’s counter‐narcotics force. The Minister of the Interior is also the cabinet

44


member responsible for provincial administration. Within the MOI there are several attached departments and autonomous bodies that deal with illicit trafficking/smuggling and border management. The Counter Narcotics Police of Afghanistan (CNPA) was established in 2003 to function as a mobile, self sustaining, and effective law enforcement agency compliant with international standards to combat drug production and trafficking in Afghanistan. The CNPA is the specialist force under the Afghan Ministry of the Interior and is the lead agency for counter narcotics investigations. By Afghan law the CNPA is established as an independent body but within the organizational structure of the Afghan National Police of the Ministry of Interior. In 2011 the CNPA had 3700 staff. The Afghan Border Police (ABP) is responsible for securing Afghanistan’s 5,529 km border and international airports. The ABP is also responsible for administering the country’s immigration process and customs regulations. The ABP falls under the command of the Afghan National Police (ANP) which is under the administrative control of the Ministry of the Interior. The US‐funded Border Management Task Force, Combined Security Transition Command ‐ Afghanistan and European Union Police Mission in Afghanistan (EUPOL) have been partners in implementation for yThey are both involved in training of the and delivery of other capacity building services in Kabul and provinces. Among the key implementing partners there will also be the Afghan Anti‐Crime Police, Ministry of Finance (Customs), Criminal Justice Task Force, Major

Crimes Task Force, Drug Regulatory Committee (MCN), Precursor Control Unit within CNPA.

ears. FIGURE.‐ ANP

Programme delivery

UNODC supports national and international partners in Afghanistan in specific niche areas such as border management, CNPA capacity building and precursor control. These areas are complemented by UNODC focus on GoIRA Drug Regulation Committee capacity as well as the integration of code of ethics for law enforcement agencies, introducing integrity and governance principles from the anti‐corruption work under sub‐programme 3. Sub‐programme 2 focuses thus on improving the capacity of counter narcotics law enforcement agencies to meet the daunting challenges the country is facing.

The sub‐programme is specifically designed to enhance law enforcement capabilities through mentoring, specialized curricula and training, and a focus on intelligence‐led policing, and increased use of forensic information for strategic drug control and crime prevention. In working towards a secure border, the sub‐programme includes support in equipment and training for drug interdiction operations as well as Afghanistan’s active participation in regional border management activities. Furthermore, train‐the‐trainer sessions are incorporated to ensure sustainability of all activities. (see FIGURE.‐ VIII)

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46

FIGURE.‐ VIII Overview of Sub‐Programme 2

SUB – PROGRAMME 2LAW ENFORCEMENT

2. Enhanced border law enforcement, including

regional cross border cooperation

2.4 Joint and/or simultaneous operations facilitated between Afghan law enforcement authorities and their regional counterparts

2.3 Operational response and capacity to prevent drug and other trafficking through international airports in Afghanistan enhanced

2.2 Mobile Interdiction Teams established, equipped, trained, and effectively conducting drug interdiction operations

2.1 Cross border liaison structures (Border Liaison Offices or BLOs) of law enforcement officials established and used at selected high risk locations

1. Operational capacity of the Counter Narcotics Police of Afghanistan developed in the areas of training, intelligence, mobile detection teams,

forensics and precursor control

1.4 CNPA Forensic Laboratory equipped, trained and mentored to develop intelligence on heroin manufacturing and trafficking

1.3 Mobile Detection Teams established, equipped, trained and mentored

1.5 Afghan authorities are equipped trained and mentored to interdict smuggled consignments of precursor chemicals.

1.2 An intelligence fusion cell (Tactical Operation Centre for TOC) established, equipped and staff trained

1.1 National professional training mechanism to deliver a wide‐ranging drug law enforcement curriculum and regular training to officers implemented through the Training Directorate

OUTC

OMES

OUTPUTS


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3.4 Sub‐Programme 3 : Criminal Justice

Re‐establishing the rule of law, building integrity, addressing impunity, and developing a professional judicial culture are essential pre‐requisites for peace and stability in Afghanistan and is an essential basis to effectively addressing narcotics trafficking. In 2002, the UNODC Criminal Justice Reform Programme was constituted as an immediate response to the needs of Afghanistan’s formal justice system, which was lacking the most basic material, qualified legal and judicial personnel as well as infrastructure. These challenges largely remain ten years on. Criminal justice reform and capacity building, anti‐corruption, prison reform, juvenile justice, terrorism prevention and anti‐human trafficking measures are the main priorities agreed with national and international stakeholders where UNODC can make its best contribution, for the next three years. Anti‐corruption efforts intensified with the ratification of the United Nations Convention Against Corruption (UNCAC) in 2008 and the subsequent drafting and adoption of legal frameworks in line with UNCAC. In this regard, UNODC will continue to support the High Office of Oversight and Anti‐Corruption (HOOAC), the Attorney General's Office and the Supreme Court, as well as offer legal advice for required reforms, and practical assistance in the implementation of obligations under the Convention. These include support for the development of a comprehensive anti‐corruption policy, strengthening judicial integrity, supporting development of international cooperation, and further asset recovery capacities. UNODC will also assist the HOOAC in preparing for and carrying

out Afghanistan’s mandatory review of compliance with Chapters III and IV of the UNCAC, as set out by the UNCAC Implementation Review Mechanism. In the follow on to the review, we will also provide advice and assistance to the HOOAC and other relevant government institutions in carrying out recommended activities for UNCAC compliance. UNODC will be active in the fields of research and awareness raising on anti‐corruption matters. Ultimately, targeting corruption through the counter‐narcotics fight, will break the strong link between the Afghan narco‐economy and endemic corruption and thereby increase citizens’ confidence in their justice institutions. With a comprehensive approach, where provision of infrastructure goes hand in hand with building a solid legislative framework, UNODC will focus on building justice institutions’ capacity in countering narcotics, terrorism, trafficking in human beings, and legal aid/access to justice and juvenile justice. Special emphasis is placed on human rights and the protection of vulnerable groups, such as women and children. Provincial outreach is an important element in this approach, which started with Justice Support Centres established in selected provinces and will continue with provincial capacity building. Another key activity of UNODC in Afghanistan is prison reform. Building on the work undertaken so far, UNODC aims to reduce the overcrowding in prisons by encouraging the use of alternatives to incarceration, by focusing on normative and operational priorities across and outside the system. Included in this effort is a focus on


48

the post release reintegration of prisoners. In 2011, a major prison escape of almost 500 prisoners expedited the GoIRA efforts to transfer the prison system back to the MoI from the MoJ. With this ministerial transfer, UNODC will seek to ensure that the prison system respects the human rights of the prisoners and is aligned with international standards. Similarly, UNODC proposes to continue supporting the GoIRA in its effort to continue reform of the juvenile justice system. Increasing rates of juvenile detention coupled with the recent report of the Committee on the Rights of the Child on Afghanistan provides appropriate vehicles to partner with the international community in engaging with the government to address deficiencies in the juvenile justice system. Since October 2006, UNODC has been the lead agency within the Criminal Law Reform Technical Committee and, in this capacity, has taken an active role in consultative and drafting sessions of the Criminal Law Reform Working Group, along with representatives of other international organizations and agencies. UNODC’s goal is to ensure that justice institutions have a legislative framework that will provide fairness and due process of law to those accused of crimes, with special attention to vulnerable groups, viz., children and women. UNODC will continue to provide legal and policy advice to national and international stakeholders on several legislative initiatives. Recent examples include the draft Criminal Procedure Code, the Law on the Elimination of Violence Against Women, the Anti‐Corruption Law, and the Audit Law. UNODC will take an active role in the Criminal Law Review Working Group’s drafting of the new Penal

Law as one of the major efforts until 2014. Sub‐programme 3 will compliment the work of the other sub‐programmes by carrying out research and analytical work with national counterparts, mainstreaming health components in prisons, as well as training in the Police Code of Conduct. The sub‐programme will also have some cross‐fertilization with the AL programme in the context of skills training for prisoner reintegration and alternatives to incarceration. UNODC through its Terrorism Prevention Branch, in close coordination with the Country Office in Kabul, has been providing technical expertise and legal assistance to Afghanistan since 2004. UNODC is a trusted partner and has been attributed a leading role in providing legislative assistance in combating terrorism. The Criminal Justice Sub‐Programme will facilitate trainings, study tours and workshops aimed at improving investigative, prosecutorial and judicial capacities in the area of counter‐terrorism. UNODC will also support Afghan authorities with the implementation of international instruments against terrorism already ratified by Afghanistan. Trafficking in persons is of major concern for Afghanistan. This is reflected by President Karzai’s presidential decree of 2006 against trafficking in persons. UNODC will provide trainings, workshops, advice and equipment to the National Commission to Combat Human Trafficking, with the aim to develop a National Plan to Combat Human Trafficking. In addition, UNODC will design training programmes for law enforcement and judiciary with an emphasis on prosecuting human trafficking cases.


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Key implementing partners

The Ministry of Justice (MoJ) is responsible for upholding the rule of law in Afghanistan and is responsible for many of the government’s judicial affairs. The MoJ functions in a number of areas, including policy formulation, regulation, performance‐monitoring, supervision and coordination, as well as in delivering legal services and support to others in the government and the public. In its work, it is required to cooperate closely with other permanent judicial institutions, i.e., the Supreme Court and the Office of the Attorney General. It is also tasked with reviewing, drafting and/or vetting all of Afghanistan’s proposed laws or amendments to laws for compliance with, among other things, the Constitution, Islamic law principles and international treaties to which Afghanistan is a party.

The Attorney General’s Office (AGO) oversees all prosecutors in the country, both on the national and provincial levels. It is led by an Attorney General, the top prosecutor in Afghanistan. The AGO is are also responsible for investigating crimes. Pursuant to the Constitution, the police “discover” crimes and then hand them over to the AGO for investigation. The AGO is also a lead agency on the President’s Anti‐Corruption Initiative. Other duties of the AGO include protecting the civil rights of Afghanistan’s citizens, participating in legal awareness campaigns to enhance the level of legal knowledge of Afghan citizens, and evaluating citizen’s complaints against the government, among others. The Afghan Supreme Court is comprised of nine Justices, one of which is the Chief

Justice. These Justices are appointed for 10 year terms by the President and the Wolesi Jirga. The Supreme Court is the highest court in Afghanistan and it oversees all the subordinate courts and judges, down to the district level. The Supreme Court is responsible for judicial personnel, budgets, training, and all major policy decisions. The Supreme Court has four sub‐courts, called dewans, which are headed by a Justice specialized in one area of law. These dewans adjudicate disputes and then report their decisions directly to the Supreme Court. The four sub‐courts are General Criminal dewan, Public Security dewan, Civil and Public Rights dewan, and the Commercial dewan. Beneath the Supreme Court are the courts of appeal in every province. Beneath the courts of appeal are the district courts, which are the trial courts and courts of first instance. The Central Prison Department (CPD) was transferred from the MOJ to MOI in January 2012 and is responsible for the 218 active district detention centres and provincial prison facilities in Afghanistan. A quarter of these provincial facilities are located on leased properties. The Department is now administered by the Ministry of Interior where it is intended that a separate directorate of prisons will be established to ensure its independence. The High Office of Oversight and Anti‐Corruption was created by President Karzai in 2008 to combat corruption and is the highest office for the coordination and monitoring of the implementation of the Anti‐Corruption Strategy and for the implementation of administrative procedural reform in the country. This office is independent in carrying out its


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duties and reports only to the President. The HOOAC has been mandated with a unifying oversight function to coordinate, supervise and support all anti‐corruption efforts in Afghanistan. The HOOAC is the focal point for overseeing the development and implementation of anti corruption strategies. The Ministry of Women’s Affairs has responsibility for the implementation of political and social policy of the government in order to ensure that government institutions respect the civil, political and social rights of women. It is the lead agency for promoting women’s advancement in Afghanistan. Since 2002, it has evolved from a welfare oriented body to a policy influencing agency. Its main activities include establishing gender oriented inter‐agency partnerships, gathering information and monitoring gender sensitive government actions. The Criminal Justice Task Force (CJTF) provides a streamlined adjudication process for cases above a certain threshold investigated by the CNPA Judicial police and other law enforcement organizations prior to their prosecution by the Office of the Attorney General and the Central Narcotics Tribunal. Comprised of 30 Afghan prosecutors, 35 Afghan criminal investigators, 7 primary court and 7 appellate court judges, the CJTF involvement in drug cases has led to a significant increase in the number of investigations. The CJTF has secured over 1000 convictions for narcotics offences since it was established in 2005. In the year 2010/2011 the CJTF sent 383 cases to the CJTF Primary court, 434 cases to the Appeal court and 427 cases to the

Supreme Court of the Islamic Republic of Afghanistan for their final decisions, an increase of 26% from the previous year. These convictions include public officials. The key implementing partners also include various NGO’s, the Ministry of Interior, the Ministry of Labour, Social Affairs, Martyrs and Disabled, the Afghan Independent Human Rights Commission, the Taqnin Major Crimes Task Force, the Central Prison Department, the Ministry of Public Health (MoPH), and UNDP. National Priorities and Frameworks

Created as a result of the 2007 Rome Conference, the National Justice Sector Strategy was implemented through the National Justice Program, to integrate the institutional strategies of the Supreme Court, Ministry of Justice and Attorney General’s Office. This has resulted in the creation of a solid foundation for the long term sustainable development of the justice sector. This success has been achieved by adhering to three key goals or long term priorities:

(I) Improved integrity, performance and infrastructure of justice institutions resulting in improved service delivery by access to, and public confidence in, the justice system. (II) Improved coordination and integration within the justice system and with Government institutions and civil society focuses on linkages between critical areas of support necessary for the proper functioning of justice institutions which include the legislative process, academic legal education and training mechanisms and partner institutions in government and civil society.


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(III) Improved Quality of Justice focuses on processes and practices in the justice institutions that will facilitate citizens’ access to quality justice services. Specifically, it will address issues related to the availability of basic legal information by victims, witnesses, accused persons, civil litigants and other constituents of the justice system to access quality justice. Programme delivery

Sub‐programme 3 aims to promote and support criminal justice reform and capacity building. Part of that reform requires Afghanistan to harmonize its laws with international instruments and standards. The sub‐programme focuses on anti‐corruption efforts, which includes support towards compliance with UNCAC and increased capacity for evidence‐based policy and adjudication.

Measures intended to enhance criminal justice cooperation nationally and internationally; to prevent and combat trafficking in persons and promote juvenile justice; as well as to create a culture of integrity based on Codes of Conduct are central to this sub‐programme. Equally significant, prison system reform for improved management and administration, and including social reintegration programmes, will be pursued.

Through this sub‐programme UNODC will advocate for human rights and special care for vulnerable groups in the justice system. (see FIGURE.‐ IX)


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FIGURE.‐ IX Overview of Sub‐programme 3

SUB – PROGRAMME 3

CRIMINAL JUSTICE

2. Anti‐corruption measures strengthened in line with UNCAC

2.4 Strengthen the capacity of CSOs and the private sector to advocate for anti‐corruption enforcement measures

2.3. National law harmonized with Afghanistan’s obligations under the UNCAC

2.5 Support promotion of integrity by justice and law enforcement bodies with a focus on the implementation of Codes of Conduct implementation of Codes of Conduct

2.2 Research capacity of HOO enhanced for more effective evidence‐based policy

2.1 Strengthened professional capacity in the High Office for Oversight.Training Directorate

3. Prison system reformed in line with international standards and norms, with an emphasis on alternatives to imprisonment and pre‐trial detention

3.4 Health and drug treatment services available for prisoners in selected facilities.

3.3 Vocational and educational training established and available to facilitate reintegration for male, female prisoners and juveniles

3.2 Alternatives to imprisonment and detention established with special focus on women and girls.

3.1 Improved penitentiary system conditions through the implementation of comprehensive training curricula for prison officials

3.5 Special care for vulnerable groups, including imprisoned women and their children

3.6 Improve the capacity of the district detention system.

3.7 Juvenile justice system reformed to be in line with international standards

1. Afghan authorities reform criminal justice system in line with international standards and norms

1.4 Measures to prevent and combat trafficking in persons in Afghanistan set in place

1.3 National capacities for international judicial cooperation in criminal matters of justice and law enforcement institutions promoted

1.5 Enhanced operational capacity (including working conditions) of judges and prosecutors in selected provinces

1.2 Strengthened legislative and institutional capacity to prevent and combat terrorism

1.1 Support to the legislative reform process, as a permanent consultative process involving Afghan institutions and major experts within the international community

OUTC

OMES

OUTPUTS


3.5 Sub‐Programme 4 : Health and Livelihood

Afghanistan is affected by illicit drug production as well as drug use and dependence (and a concentrated HIV epidemic among injecting drug users) and this sub‐programme addresses both areas. Health: Drug demand reduction and HIV/AIDS

It is estimated that over a million Afghans, or 8 percent of the population between 15 and 64, are now using drugs. Heroin use more than doubled to 120,000 users between 2005 and 2009. The prevalence of HIV/AIDS has increased and there is now a concentrated HIV epidemic amongst injecting drugs users (IDUs). The combined challenges of drug control and livelihoods security also remain immense. Afghanistan is the poorest country in South Asia with over 30% of the population living below the poverty line. Many Afghans are dependent on the illicit economy for survival and either cultivate illicit crops, work as itinerant labour in poppy fields or get drawn into the illicit drug trade. The combination of insecurity, underdevelopment, weak governance, and illicit drug production and use creates a highly unstable environment, one in which peaceful, developing, drug‐free communities find it difficult to thrive. UNODC is active in the fields of drug use prevention and treatment including HIV/AIDS prevention and care. UNODC has set up drug demand reduction action teams in different provinces and provides support to treatment and rehabilitation centres, a network of night‐shelters, treatment services and other measures to prevent the health and social consequences of drug use and dependence. Additionally, UNODC supported outreach

activities that propagate information to young people and communities. With the young Afghan population being the most numerous and vulnerable one, UNODC focuses on working with children and youth at risk. An initial pilot experience aimed at improving the quality of drug dependence treatment services and developing tools for the appropriate screening, assessment and treatment of children and adolescents is currently being implemented in Kabul, followed by expansion and improvement of services to six regions of Afghanistan. UNODC plans to support drug preventive measures among law enforcement officers. While the Ministry of Interior has established a Police Treatment Centre in Kabul, UNODC will be establishing one in Herat. UNODC also plans to work on relapse prevention, as well as employment opportunities and market‐based vocational training for drug users in the future. Providing comprehensive evidence based drug dependence treatment is a core element of demand reduction and HIV/AIDS prevention and care.33 Comprehensive drug dependence treatment services should be accessible, effective and diversified. Stronger attention needs to be given to aftercare services. These will also be provided by UNODC and include relapse prevention training, basic skills training i.e. numeracy, literacy and computing and 33 For example methadone maintenance therapy is a key element of drug treatment and HIV prevention services; Afghanistan’s Drug Regulation Committee has approved the importation of methadone for the pilot MMT programme being carried out by Medicins du Monde (MDM). This programme is supported by NACP and World Bank and has also obtained a quota from the International Narcotics Control Board (INCB). However, the importation is for a small pilot for 70 drug users and needs to scaled up.

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‘pathways to work’ vocational training programme and apprenticeships. Regarding HIV/AIDS, UNODC has provided support to the National AIDS Control Programme (NACP) to develop the national strategic framework for 2011‐2015. UNODC’s HIV/AIDS work focuses on vulnerable groups, such as female drug users, prisoners and persons vulnerable to human trafficking. Sub‐Programme 4 will assist NACP in scaling up services and aims to increase access to quality HIV/AIDS prevention, treatment and care services for the above mentioned groups. UNODC also supports humanitarian activities and night shelters for drug users in Kabul. After decades of conflict, healthcare structures in Afghanistan have been left largely unable to provide the services required by its population. Its already modest health infrastructure is additionally burdened with new health challenges, such as increased drug dependence among Afghans and cases of HIV/AIDS infections. The DDR HIV/AIDS program will also work at developing close links with the Basic Package of Health Services (BPHS) and the Essential Package of Health Services (EPHS) through strengthening referral mechanisms and conducting joint training programmes. The sub‐programme will also assist MCN to advocate for DDR mainstreaming in BPHS and EPHS systems of MOPH. Alternative Livelihoods

UNODC recognizes that under most circumstances it is difficult if not impossible for a licit cash crop to compete one‐on‐one with opium poppy. As an example, a reliance on a mono‐crop such as wheat includes external risks such as a vulnerability to market forces

outside of Afghanistan. Between the opium income of yesterday and the legal income of tomorrow is today’s need to boost the quality of life of rural households. This defines alternative livelihood (AL) versus the more long‐term and indispensable notion of rural development. In order to discourage cultivation in opium poppy growing areas, or to sustain the ban on cultivation in opium free zones, it is crucial that alternative livelihoods measures are strengthened and coupled with the provision of government services. In this specific area UNODC recognizes the national policy, leadership, and coordinating role of the MCN and the need to strengthen the MCN’s national and provincial capacity in coordinating the National Drug Control Strategy. UNODC provides the MCN with research and information‐sharing technology. In the field, UNODC focuses on supporting the MCN in provincial offices and works within the framework of UN partnerships on projects such as land stabilization, watershed and irrigation rehabilitation, and infrastructure rebuilding. Based on prior experience, UNODC recognises the need to pay special attention to the human aspect of alternative livelihoods. This includes increased training and mentorship, a more nuanced gender sensitive approach, the fielding of pilot projects, and further research into alternative crops. Under sub‐programme 4, alternative livelihoods will be delivered through strategic partnerships and synergies ‐ an enhanced coordination and cooperation among UNODC, MCN, and diverse development streams. This will entail, among others, the promotion of entrepreneurship and agricultural value‐added endeavours, as well as the implementation of evidence‐based approaches to AL project design.

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As previously noted, CN has lost its appeal as a programme area for international and national stakeholders and ‘genuine mainstreaming’ intends to correct this imbalance and increase the impact of aid expenditure on CN. Without having to approach donors for additional funding, ‘genuine mainstreaming’ is intended to encourage the channelling of existing pooled money towards CN goals. Hence, CN will become an objective within the broader range of aid projects, rather than be sidelined as merely a consideration. While this approach does not represent a return to CN conditionality, it is intended to present a ‘soft conditionality’ towards local authorities. ‘Genuine Mainstreaming’ 34 is a concept well in line with UNODC’s existing approach to Alternative Livelihoods. In its community‐based livelihoods work, UNODC encourages households to maintain or improve their quality of life while making a shift from illicit to licit incomes while concomitantly pursuing community‐led CN outcomes. UNODC can thus apply ‘genuine mainstreaming’ concepts at the bottom‐up level, using its ‘social contract’35 as

34 In injecting CN as an objective in development aid, an approach at two levels is envisioned: 1) Top‐Down: ‘Genuine mainstreaming’ at the top level seeks to increase the profile of CN when large rural development and infrastructure assistance programmes are designed. Efforts directed at the Governor level will be pursued to ensure that entire aid packets are included when considering CN in provinces. 2) Bottom‐Up: Equally important is a bottom‐up approach in carrying out the ‘genuine mainstreaming’ of CN. This entails integrating CN in form of a ‘social contract’ between the local communities, government and donors. 35 The notion of a Social Contract, a concept borrowed from philosophy, stipulates that community members unite to protect one another, abiding by mutually consented rules and pursuing agreed upon duties. The ‘social contract’ is compatible with Islamic principles and recognizes the communities’ obligation to partake in tackling the counter narcotics problem in Afghanistan.

a foundation in its alternative livelihoods projects. Key implementing partners

With reference to the Health aspect of the sub‐programme, UNODC’s key implementing partners will be the Ministry of Public Health, Ministry of Counter Narcotics, Ministry of Justice, Ministry of Women’s Affairs, Ministry of Refugees and Ministry of Interior. The program works closely with other UN agencies including WHO, UNAIDS, UNHCR and institutions like The John Hopkins University, The Vienna University and the National Institute of Drug Addiction (NIDA), INL/Colombo Plan.36 In addition the Health programme will work closely with the Drug Regulatory Committee which has the authority to “grant a permit or license only to the government institutions for activities … for the purpose of treatment, medical and scientific research, promotion of education, and industrial purposes.”

With reference to the Livelihoods aspect of the sub‐programme UNODC’s key implementing partners will be the Ministry of Counter Narcotics, Ministry of Agriculture, Irrigation, and Livestock, Ministry of Women’s Affairs, Ministry of Labor and Social Affairs, Ministry of Interior, Ministry for Rural Reconstruction and Development, Central Prison Department, and Microfinance Investment Support Facility for Afghanistan (MISFA).

36 UNODC and INL jointly implement treatment services in Afghanistan while also UNODC works closely with Colombo Plan and INL on joint capacity building for treatment service providers in Afghanistan.

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National Priorities and Frameworks

The Afghan Government’s “National Strategy for Drug Demand Reduction and Drug Use Related Harm in Afghanistan (2011‐2015)’’ is under development. The DDR/HIV AIDS programme has assisted the MCN in its development of a DDR strategy by providing experts to assist in guidance and drafting of policy development. The first draft of the DDR strategy has been completed by the MCN in consultation with relevant line ministries. In partnership with the MCN the new strategy will be presented to all stakeholders at a workshop followed by a series of consultation meetings.

The Afghanistan National HIV/ AIDS Strategic Framework (2011 ‐ 2015) (ANASF) is a broad strategic framework designed to guide Afghanistan’s response to HIV/ AIDS. It serves as a guide for the involvement of various stakeholders active in fields related to HIV/ AIDS prevention, care and treatment. It aims to assist stakeholders in developing their own strategic plans, so that all initiatives in the country can be harmonized to maximize efficiency and effectiveness. It establishes fundamental principles and identifies priority areas where increased attention is likely to have the greatest impact on HIV/ AIDS in Afghanistan. The new ANASF was designed in 2011 and is currently awaiting approval of MOPH. Programme delivery

In light of the increasing challenges that drug use, drug dependence and HIV/AIDS present, ‘Afghanization’ will be promoted to encourage Afghan ownership of addiction problems and response. Sub‐programme 4 also aims to

address the serious shortfalls in drug dependence treatment available and to that effect will contribute to the establishment of drug addiction treatment and care services, including several residential treatment centres, in most of Afghanistan’s provinces. A special focus will be given to children.

The sub‐programme will support evidence‐based policy development in AL, build partnerships and promote CN Genuine Mainstreaming. The sub‐programme will develop a range of strategic evidence‐based AL sub‐projects centred on community participation, while endeavouring to promote better uptake, promulgation and sharing of lessons learned from past AL support. The AL sub‐projects will focus on: agricultural diversification and value addition, paying special attention to the role of women; training of key farmers; job creation through skills enhancement; rehabilitation and protection of livelihoods resources; and entrepreneurship. To increase harmonisation among different stakeholders, sub‐programme 4 is also designed to support the MCN in effectively leading coordinated national CN public awareness campaigns. (see FIGURE.‐ X)


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FIGURE.‐ X Overview of Sub‐Programme 4

2. Increased access to quality HIV/AIDS prevention, treatment and care services for drug users (with a focus on IDUs), prisoners and persons vulnerable to human trafficking

2.4 . Assist MCN, MOPH and MOJ to ensure Afghanization of responses to HIV/ AIDS amongst drug users (focussed on IDUs), in prison settings and among persons vulnerable to human trafficking

2.3. Increased availability of data on effective responses to HIV/AIDS

2.2 Institutional and civil society capacity strengthened

2.1 Assist NACP in scaling up the comprehensive package of services for prevention, treatment and care drug users (focussed on IDUs), prisoners & PVHT

3. Wider coverage of alternative livelihoods for drug affected

communities.

3.3 Improved coordination and genuine mainstreaming of AL‐related strategies and programmes in Government, and among Government, multilateral / bilateral donors, and the private sector

3.2 Strengthened MCN capacity on AL policy, project planning and monitoring at central and provincial levels

1. Increased access to quality drug prevention, treatment and rehabilitation services

1.4 Assist MCN and MOPH to ensure there is an inclusive National response to drug dependence developed by Afghanistan

1.3 Effective information, education and communication on drug use developed

1.5 Drug use monitoring system in place

1.2 Workplace drug use prevention and treatment available for ANP

1.1 Selected service providers equipped and skilled to provide evidence based prevention, treatment and care services in priority provinces

OUTC

OMES

OUTPUTS

3.1 Integrated / multifaceted AL demonstration projects aimed at breaking households’ linkages with the illicit drug economies

HEALTH AND ALTERNATIVE LIVELIHOODS

SUB – PROGRAMME 4


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4. PROGRAMME MANAGEMENT 4.1 Programme Governance Mechanisms and Structures This Country Programme will be executed by UNODC through the Country Office in Afghanistan. UNODC Headquarters will provide support and technical assistance. UNODC’s Regional Representative (D2) and head of the Country Office in Afghanistan is ultimately responsible for all of UNODC’s operations in Afghanistan. The Deputy Representative is the day to day manager and will oversee the implementation of Country Programme. If funding is secured COAFG foresees the presence of a Programme Officer in charge of Operations. A senior expert with in‐depth substantive knowledge leads each sub‐programme. In turns of programme governance, the Country Programme foresees establishment of two types of entities with specific and defined tasks; this will be the Programme Steering Committee (PSC) and Sub‐programme Technical Committees (SPTC). Government partners will play an important part in the Programme Steering Committee and the Sub‐programme Technical Committee. Strategic oversight and direction for the Country Programme will be provided by the Programme Steering Committee. Membership of the PSC comprises of line ministries (MOJ, MOI, MCN, MOPH, and MRRD) and other GoIRA counterparts such as AGO, Chief Justice Office, MAIL, as well as donors. The PSC will be co‐chaired by UNODC’s Representative and the Ministry of Counter Narcotics. The PSC will meet

annually, and when requested on an ad hoc basis to: i) Annually review CP implementation and the results being achieved; ii) Provide policy guidance and strategic advice with respect to the focus of UNODC support and review forward plans for sub‐programmes and their component plans; and iii) Review annual priorities and workplans, drawn up by the Sub‐Programmes Technical Committees. The Sub‐Programme Technical Committees will comprise of representatives from relevant ministries and other government institutions, as well as donors and will be co‐chaired by the UNODC’s Programme Manager and an assigned Government representative. The SPTC will meet at least twice a year, including one preparatory meeting immediately prior to the annual Programme Steering committee meeting. The technical committee will create economy of scale and be combined with current regular consultations COAFG has with GoIRA counterparts and donors. External partners may be invited to attend SPTC meetings as observers. GoIRA representatives will be responsible for providing feedback on priorities and related workplans drawn up by UNODC to implement the sub‐programme.

An overview of these governance arrangements, and their link to the CP structure, is provided in Figure.‐ XI below.


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FIGURE.‐ XI

PROGRAMME STEERING COMMITTEE

Afghanistan Country Programme 2012‐2014

Technical Working Group for Sub‐Programme 2

Law Enforcement

Technical Working Group for Sub‐Programme 3 Criminal Justice

Technical Working Group for Sub‐Programme 4 Health and Livelihood

Technical Working Group for Sub‐Programme 1

Research, Policy, Advocacy

In Afghanistan, procurement and payments will be managed through UNDP Afghanistan, in accordance with the global agreement between UNODC and UNDP. In addition, specialised equipment and services may be procured and paid for through UNODC HQ.

4.2 Monitoring and Reporting

The Country Programme will be monitored by COAFG, with the support and technical guidance of UNODC HQ. The Sub‐programmes will be reviewed through the Sub‐programme Technical Committee on a biannual basis, or preferably quarterly, and a final review meeting at the end of the programme execution. Periodic (bi‐annual) progress reports will be prepared detailing the activities and achievements of the programme, drawing attention to difficulties encountered and measures introduced to overcome them. A comprehensive sub‐programme progress

report, analyzing the achievements and impact of the project in the year of implementation to the project will be submitted to parties at least two months prior to the date of the PSC meeting. 4.3 Evaluation The present Programme, along with its Sub‐Programmes, will be evaluated twice: a mid‐term Country Programme Evaluation and a final Country Programme evaluation, both to determine the relevance, efficiency, effectiveness, impact and sustainability of the Country Programme and to identify lessons to be learned. The Country Programme Evaluations will be managed and conducted by the UNODC’s Internal Evaluation Unit (IEU) in collaboration with independent external evaluators as any other In‐Depth Evaluation.


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The purpose of the Country Programme Evaluation is to :

• Contribute to organizational learning by identifying the strengths and weaknesses of UNODC in the country.

• Contribute to accountability by assessing the achievements of UNODC in the country.

• Contribute to the decision‐making in relation to UNODC’s strategic orientation in the country.

• Inform the Regional Programme evaluation

The terms of reference, including the purpose of the evaluation and the duration of any evaluation field visit will be determined by UNODC, in consultation with Internal Evaluation Unit and other parties, as appropriate. Provision for evaluation is included in the programme budget. Funds to cover evaluation costs are included under budget line 5700 as per UNODC regulations. Periodic evaluations may also be undertaken of specific programme activities.

______________________________________________________________________________ The monitoring and evaluation of this CP will be guided by the following considerations:

• Ownership and alignment. UNODC will support GoIRA efforts to build capacity to run research, including data collection and analysis relevant to outcome achievement.

• Results‐focus and attribution. The CP is focused on contributing to mutually agreed outcomes. Programme‐level monitoring and

log frame evaluation will therefore focus on analysing achievements at the results level (namely outputs and outcomes).

• Practicality and cost‐effectiveness. If M&E is to be effectively carried out and the results used, it must be adequately simple and practical to implement. M&E activities must also be effectively resourced, including with respect to the development of M&E competencies among both UNODC staff and implementing partners.

ID Deliverables Description Schedule

1 Mid‐term Evaluation

Mid‐term evaluation to assess progress towards programme results articulated in the Work Plan and provide recommendations

Mid‐term

2 Final

Evaluation

Final project evaluation to assess achievement of programme results articulated in the Work Plan and document lessons learned

100% project completion


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The ‘Results and Monitoring framework’ in Annex 2 provides details of suggested indicators and information sources for monitoring progress towards programme outcomes. The framework also clarifies interlinkages with the Regional Programme for Afghanistan and Neighbouring Countries.

In line with promoting aid effectiveness principles, contributing donor partners will also be strongly encouraged to align their reporting requirements with UNODC/GoIRA agreed systems established under this CP. Monitoring and transparency will be ensured through six‐monthly and annual reports presented by UNODC to the SPTC and PSC.


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ANNEXES

ANNEX 1 – STATUS OF CONVENTIONS ON DRUGS, CRIME AND TERRORISM

UNODC is the ‘guardian’ of the following UN Conventions and treaties, and as a consequence has a mandate to support Member States to implement their provisions:

• The Single Convention on Narcotic Drugs of 1961 as amended by the 1972 Protocol (signed by Afghanistan in 1999).

• The Convention on Psychotropic Substances of 1971 (accession by Afghanistan in 1977).

• The Convention against the Illicit Traffic in Narcotic Drugs and Psychotropic Substances of 1988 (ratified by Afghanistan in 1991).

• The United Nations Convention against Transnational Organized Crime of 2000 (ratified by Afghanistan in 2003). However, its protocols remain unsigned, namely:

− Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children.

− Protocol against the Smuggling of Migrants by Land, Air and Sea.

− Protocol against the Illicit Manufacturing of and Trafficking in Firearms, Their Parts and Components and Ammunition.

• The United Nations Convention against Corruption of 2005 (ratified by Afghanistan in 2008).

• The universal treaties on counter‐terrorism and Security Council Resolutions relevant to the prevention and suppression of terrorism, including:

− 1963 Convention on Offences and Certain Other Acts Committed On Board Aircraft (Aircraft Convention): Ratified by Afghanistan on 11 September 1973.

− 1970 Convention for the Suppression of Unlawful Seizure of Aircraft: Ratified by Afghanistan on 28 November 1973.

− 1971 Convention for the Suppression of Unlawful Acts Against the Safety of Civil Aviation: Acceded to by Afghanistan on 24 January 1974.

− 1988 Protocol for the Suppression of Unlawful Acts of Violence at Airports Serving International Civil Aviation, supplementary to the Convention for the Suppression of Unlawful Acts against the Safety of Civil Aviation: Ratified by Afghanistan 26 September 2000.

− 1973 Convention on the Prevention and Punishment of Crimes Against Internationally Protected Persons: Acceded to by Afghanistan on 29 March 1976.

− 1979 International Convention against the Taking of Hostages: Acceded to by Afghanistan on 8 September 2000.

− 1980 Convention on the Physical Protection of Nuclear Material: Acceded to by Afghanistan on 12 September 2000.


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− 1988 Convention for the Suppression of Unlawful Acts against the Safety of Maritime Navigation: Acceded to by Afghanistan on 20 September 2000.

− 1988 Protocol for the Suppression of Unlawful Acts Against the Safety of Fixed Platforms Located on the Continental Shelf: Acceded to by Afghanistan on 12 February 2001.

− 2005 Protocol to the Protocol for the Suppression of Unlawful Acts against the Safety of Fixed Platforms Located on the Continental Shelf: Under consideration by Afghanistan.

− 1997 International Convention for the Suppression of Terrorist Bombings: Acceded to by Afghanistan on 13 August 2002.

− 1991 Convention on the Marking of Plastic Explosives for the Purpose of Detection: Signed by Afghanistan 1 March 1991. Accession is under consideration.

− 1999 International Convention for the Suppression of the Financing of Terrorism: Under consideration by Afghanistan.

− 2005 International Convention for the Suppression of Acts of Nuclear Terrorism: Under consideration by Afghanistan.

UNODC is also mandated to implement the UN Standards and Norms on Crime Prevention and Criminal Justice, including with respect to victim protection, violence against women and the humane treatment of offenders.

ANNEX 2 – RESULTS AND MONITORING FRAMEWORK

Sub‐Programme 1: Research, Policy and Advocacy

Results hierarchy Performance Indicators Means of Verification

Outcome 1 National illicit crop monitoring system strengthened (F98)

(a) Timely completion of summary findings and final report (eradication/weekly, price/monthly summary finding and final report/yearly)37 (b). Information available to major national and international stake holders38

(a)(i) Crop Monitoring Publications (b)(ii) Crop Monitoring Publications

Outcome 2 Building Afghan Counter Narcotics Analytical Capacity for Evidence‐Based Policy and Advocacy (U04)

(a) Functioning statistical and analytical teams at the MCN, MOI, MoPH, MRRD conducting research and monitoring the NDCS.

(a)(i) Related programme and project monitoring reports (b)(ii) Research and reports produced in the ministries

Outcome 3 Afghan capacity for delivery of counter‐narcotics responses developed (K65)

(a). Improvements in overall Counter‐Narcotics benchmarks39 for Afghanistan as specified in National Drug Control Strategy (NDCS) (b). MCN actively coordinating GoIRA’s CN strategy and programmes are designed and implemented in accordance with this strategy

(a)(i) GoIRA documents and reports on CN including the Afghan Drug Report (ADR) and the National Drug Control Strategy (NDCS) (b)(i) GoIRA documents and reports on CN including the Afghan Drug Report (ADR) and the National Drug Control Strategy (NDCS)

Sub‐Programme 2: Law Enforcement


Outcome 1 Operational capacity of the Counter Narcotics Police of Afghanistan developed in the areas of training, intelligence,

(a). Number of cases of illicit trafficking/smuggling identified and investigated by relevant law enforcement agencies (by location, type, scale, etc).40

(a)(i) Relevant law enforcement agency and court records and reports

37 This indicator links to outcome 10 of Regional Programme/RERV10 38 This indicator links to outcome 10 of Regional Programme/RERV10 39 Afghanistan, Ministry of Counter‐Narcotics, National Drug Control Strategy: An Updated Five‐Year Strategy for Tackling the Illicit Drug Problem (Kabul, 2006), p. 26 40 This indicator links to outcome 2 of Regional Programme/RERV07

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mobile detection teams, forensics, and precursor control.

Outcome 2 Enhanced border law enforcement, including regional cross border cooperation

(a) Number of cases of illicit trafficking/ smuggling detected by BLOs set up with UNODC assistance.41 (b). Number of cases of illicit trafficking/ smuggling detected by Port Control Units set up with UNODC assistance.42 (c). Qualitative views of border management agencies and private sector with respect to effectiveness of border management in facilitating trade and interdicting illicit trafficking (d). Number of joint operations and amounts of drugs, precursors or other contraband seized.43

(a)(i) Relevant law enforcement agency records and reports (b)(i) Relevant law enforcement agency records and reports (c)(i) Surveys of stakeholder views, conducted by UNODC/independent research group (d)(i) Relevant law enforcement agency records and reports

Sub‐Programme 3: Criminal Justice


Outcome 1 Afghan authorities reform criminal justice system in line with international standards and norms

(a). Number of laws on Terrorism Prevention aligned with UN conventions on terrorism. (b). Number of requests for mutual legal assistance received from or submitted to foreign jurisdictions and processed/accommodated.44

(a)(i) Documents with the proposed revision/new law (b)(i) Reports from the Attorney General’s Office

41 This indicator links to outcome 2 of Regional Programme/RERV07 42 This indicator links to outcome 2 of Regional Programme/RERV07 43 This indicator links to outcome 2 of Regional Programme/RERV07 44 This indicator links to outcome 4 of Regional Programme/RERV08

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Outcome 2 Anti‐corruption measures strengthened in line with UNCAC

(a) Country review report issued in line with parameters of the UNCAC Review Mechanism (b) Legislation brought into line with the provisions of the UNCAC (c) Number of corruption cases identified/prosecuted/adjudicated

(a)(i) Country Review Report issued in line with parameters of the UNCAC Review Mechanism. (b)(i) Draft laws and regulations (c)(i) Reports on corruption cases identified/prosecuted/adjudicated by relevant judicial entities (HOO, AGO and SC)

Outcome 3 Prison system reformed in line with international standards and norms, with an emphasis on alternatives to imprisonment and pre‐trial detention

(a) Number of alternative to imprisonment cases (b) Number of prisons aligned with minimum standards for the treatment of prisoners (c) Number of new procedures drafted and implemented with a view to improving living standards in prisons, to comply with international human rights and penitentiary standards

(a)(i) Reports from Central Prison Department (a)(ii) Programmes/projects reports. (b)(i) Reports from Central Prison Department (b)(ii) Programmes/projects reports. (c)(i) Documents detailing the new procedures for prison management.

Sub‐Programme 4: Health and Livelihoods


Outcome 1 Increased access to quality drug prevention, treatment and rehabilitation services

(a) Number of persons reached by evidence and community based drug prevention interventions45 (b). Number of drug dependent persons utilizing treatment and rehabilitation services (disaggregated by gender, geography)46

(a)(i) Reports on new drug prevention, treatment and rehabilitation services designed or implemented (a)(ii) Reports from the staff of these services on the number of people using them, disaggregated by gender and other relevant categories (a)(iii) Reports on treatment

45 This indicator links to outcome 6 of Regional Programme/RERV09 46 This indicator links to outcome 6 of Regional Programme/RERV09

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effectiveness amongst all populations through Drug Abuse Monitoring System (b)(i) Reports on new drug prevention, treatment and rehabilitation services designed or implemented (b)(ii) Reports from the staff of these services on the number of people using them, disaggregated by gender and other relevant categories (b)(iii) Reports on treatment effectiveness amongst all populations through Drug Abuse Monitoring System

Outcome 2 Increased access to quality HIV/AIDS prevention, treatment and care services, focused on IDUs, prisoners and persons vulnerable to human trafficking (PVHT)

(a) Number of new HIV/AIDS prevention, treatment and care services designed/implemented47 (b) Number of persons utilising HIV/AIDS prevention, treatment and care services disaggregated for population/target groups and by service48

(a)(i) Formal Reports on new HIV/AIDS prevention, treatment and care services designed or implemented. (a)(ii) Formal Reports from the staff of these services on the number of people using them, disaggregated by gender and geography. (b)(i) Formal Reports on new HIV/AIDS prevention, treatment and care services designed or implemented. (b)(ii) Formal Reports from the staff of these services on the number of people using them, disaggregated by gender and other relevant categories

Outcome 3 Wider coverage of alternative livelihoods for drug affected communities

(a) Number of communities benefiting from alternative livelihoods interventions.

(a)(i) Baseline and follow‐up surveys (a)(ii) Satellite imagery, routine drug cultivation surveys and reports

47 This indicator links to outcome 8 of Regional Programme/RERV09 48 This indicator links to outcome 8 of Regional Programme/RERV09

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ANNEX 3 – SUB‐PROGRAMMES BUDGET SUMMARIES

Below are the indicative budgets for delivering the relevant outputs. Needs and opportunities are likely to evolve during CP implementation. In line with the CP’s flexible framework, resource requirements are likely to be adapted accordingly. Currently, the indicative budgets are spread evenly over the three years. However, there is greater uncertainty regarding conditions and needs in later years. UNODC is able to anticipate and estimate indicative activities and resource requirements more accurately in earlier years. UNODC will develop implementation concepts and workplans for particular outcomes (components) as required and in accordance with UN standards, consulting with the GoIRA through CP governance mechanisms.

SUMMARY BUDGET IN USD

2012 2013 2014 TOTAL

Sub‐Programme 1 : TOTAL 8,899,200 11,009,400 5,186,100 25,094,700

Sub‐Programme 2 : TOTAL

9,421,000 10,756,500 5,294,500 25,472,000

Sub‐Programme 3: TOTAL 9,874,800 11,115,200 8,059,800 29,049,800

Sub‐Programme 4: TOTAL 10572,500 14,325,500 13,056,000 37,954,000

38,767,500 47,206,600 31,596,400 117,570,500

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2012 2013 2014 TOTAL


Component 1: National illicit crop monitoring system strengthened

3,885,700 3,850,000 ‐ 7,735,700

Component 2: Building Afghan Counter Narcotics Analytical Capacity for Evidence‐Based Policy and Advocacy (U04)

2,340,700 3,018,300 ‐ 5,359,,000

Component 3: Afghan capacity for delivery of counter‐narcotics responses developed

2,672,800 4,141,100 5,186,100 12,000,000

Sub‐Programme 2: Law enforcement capacity building

OUTCOME 1: Operational capacity of the Counter Narcotics Police of Afghanistan developed in the areas of training, intelligence, mobile detection teams, forensics, and precursor control

4,825,000 5,478,500 2,739,500 13,042,000

OUTCOME 2: Enhanced border law enforcement, including regional cross border cooperation

4,599,000 5,221,000 2,610,000 12,430,000

Sub‐Programme 3: Criminal Justice Reform

OUTCOME 1: Afghan authorities reform criminal justice system in line with international standards and norms

2,966,346 3,598,288 2,466,347 9,030,981

OUTCOME 2: Anti‐corruption measures strengthened in line with UNCAC

2,862,180 2,862,180 2,638,742 8,363,102

OUTCOME 3: Prison system reformed in line with international standards and norms, with an emphasis on alternatives to imprisonment and pre‐trial detention

4,046,224 4,654,707 2,954,686 11,655,617

Sub‐Programme 4: Health and Alternative Livelihood

OUTCOME 1: Increased access to quality drug prevention, treatment and rehabilitation services

3,492,000 3,241,500 2,936,000

9,669,500

OUTCOME 2: Increased access to quality HIV/AIDS prevention, treatment and care services for drug users ( focussed on IDUs), prisoners and persons vulnerable to human trafficking (PVHT)

3,300,000 2,963,100 2,257,500 8,720,000

OUTCOME 3: Wider coverage of alternative livelihoods for drug affected communities 3

3,780,800 8,120.900 7,662,300 19,564,000

TOTAL 11,497,000 13,934,000 12,522,000 37,953,000

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2011 2012 2013 TOTAL

OUTCOME 1: Information on opium and cannabis trends and patterns used by the Government of Afghanistan and key stakeholders to formulate Afghan CN policy and strategy

OUTPUT 1.1: Area under opium poppy cultivation in all provinces using satellite remote sensing data and village survey analysed

1,862,800 1,862,900 ‐ 3,725,700

OUTPUT 1.2: Information on opium yield and production estimates in all provinces collected

207,500 207,500 ‐ 415,000

OUTPUT 1.3: Area under cannabis cultivation in main provinces and cultivation trends in all provinces analysed

737,500 737,500 ‐ 1,475,000

OUTCOME 1: TOTAL 2,807,800 2,807,900 ‐ 5,615,700

OUTCOME 2: The Government of Afghanistan uses evidence on opium cultivation trends at the start of cultivation season (early warning function) to fine tune its counter narcotics strategies

OUTPUT 2.1: Report on cultivation trends of opium by province produced.

157,500 157,500 ‐ 315,000

OUTPUT 2.2: Reasons for increase/decrease of cultivation analysed.

7,500 7,500 ‐ 15,000

Output 2.3: Comparative analysis of the data collected with data from previous years available

15,000 15,000 ‐ 30,000

OUTCOME 2: TOTAL 180,000 180,000 ‐ 360,000

OUTCOME 3: The Eradication Working Group in Kabul formulate immediate CN strategies using regularly updated information for reimbursement of eradication expenditure to provincial Governors based on area of eradicated poppy fields (verified through ground measurements and satellite checks)

OUTPUT 3.1: Periodical publication and circulation of eradication figures in all provinces disseminated to major stakeholders

532,500 532,500 ‐ 1,065,000

OUTCOME 3: TOTAL 532,500 532,500 ‐ 1,065,000

OUTCOME 4: National and international stakeholders make use of improved knowledge on impact of opium cultivation, trade and economics due to volatile changes in drug prices in Afghanistan and its neighbours

Output 4.1: Twelve monthly reports on the drug price monitoring to the national and international stake holders including the trend

55,000 55,000 ‐ 110,000

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of the drug prices by region over the last 4‐5 years produced

‐OUTCOME 4: TOTAL 55,000 55,000 ‐ 110,000

OUTCOME 5: The Capacity of MCN strengthened through training and transfer of core project responsibilities to the MCN staff

Output 5.1: UNODC staff relocated to MCN by the end of 2011

142,500 142,500 ‐ 285,000

Output 5.2: Training provided to the MCN staff on GIS/RS and field surveys.

30,000 30,000 ‐ 60,000

Output 5.3: MCN supported to produce the publication on surveys conducted

120,000 120,000 ‐ 240,000

OUTCOME 5: TOTAL 292,500 292,500 ‐ 585,000

OUTCOME 6: MCN gradually takes ownership of the research and analytical skill sets in orderto inform evidence‐based policy

Output 6.1: Develop a strong statistical and analytical team in the MCN which will initially work with the support of UNODC to generate research and information to monitor the NDCS is in place and collate and process data gathered from Outcome 2, 3 and 4, which will enable MCN to report progress made

550,000 550,000 ‐ 1,100,000

OUTCOME 6: TOTAL 550,000 550,000 ‐ 1,100,000

OUTCOME 7: MoI, MoJ and MCN share information needed to inform policy making and reporting, through permanent and streamlined processes

Output 7.1: Develop a strong statistical and analytical team in the MoI, which will work under supervision of MCN, with the support of UNODC to generate research and information to monitor law enforcement activities, which will enable MCN to report on status and progress made

300.000 311,000 ‐ 611,000

Output 7.2: Develop a strong statistical and analytical team in the MoJ, which will work under supervision of MCN, with the support of UNODC to generate research and information to monitor criminal justice activities, which will enable MCN to report on status and progress made

400,000 400,000 ‐ 800,000

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Output 7.3: Build and develop a capacity within the MCN which will centrally capture CN information from various ministries, civil servants, provincial directorates and actors on the ground

200,000 200,000 ‐ 400,000

OUTCOME 7: TOTAL 900,000 911,000 ‐ 1,811,000

OUTCOME 8: MCN and MoPH regularly coordinate and share information on treatment and drug demand reduction with a view to generate research, which will inform future policy making and reporting

Output 8.1: Develop a strong statistical and analytical team in the MoPH, which will work under supervision of MCN, with the support of UNODC to generate research and information on national drug use, which will enable MCN to report on status and progress made

400,000 400,000 ‐ 800,000

OUTCOME 8: TOTAL 400,000 400,000 ‐ 800,000

OUTCOME 9: MCN, MRRD and MAIL regularly coordinate and share information on cultivation, eradication and sustainable alternative livelihoods with a view to generate information and

statistics, which will inform policy making and reporting Output 9.1: Develop a strong statistical and analytical team in the MRRD, which will work under supervision of MCN, with the support of UNODC to generate research and information on alternative livelihoods, which will enable MCN to report on status and progress made

412,000 412,000 ‐ 824,000

Output 9.2: Develop a strong statistical and analytical team in the MAIL, which will work under supervision of MCN, with the support of UNODC to generate research and information on alternative livelihoods, which will enable MCN to report on status and progress made

412,000 412,000 ‐ 824,000

OUTCOME 9: TOTAL 824,000 824,000 ‐ 1,648,000

OUTCOME 10: Afghan capacity for delivery of counter‐narcotics responses developed

Output 10.1: Government (MCN) institutional and operational capacity for drug control at central and provincial level developed

1,700,000 2,000,000 2.500,000 6,200,000

Output 10.2: Afghan national development strategies and programmes incorporate tangible counter‐narcotics responses.

550,000 1,500,000 1,700,000 3,750,000

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Output 10.3 Increased capacity within MCN to develop counter‐narcotics policies and strategies and to coordinate multi‐stakeholder responses.

422,800 641,100 986,100 2,050,000

OUTCOME 10: TOTAL 2,672,800 4,141,100 5,186,100 12,000,000


Sub‐Programme 2: Law enforcement capacity building

2012 2013 2014 TOTAL

OUTCOME 1: . Operational capacity of the Counter Narcotics Police of Afghanistan developed in the areas of training, intelligence, mobile detection teams, forensics, and precursor control

OUTPUT 1.1: National professional training mechanism to deliver a wide‐ranging drug law enforcement curriculum developed and regular training to officers implemented through the Training and Education Department.

1,049,000 1,191,000 595,000 2,835,000

OUTPUT 1.2: An intelligence fusion cell (Tactical Operation Centre or TOC) established, equipped and staff trained

719,000 816,000 408,000 1,943,000

OUTPUT 1.3: Mobile Detection Teams established, equipped, trained and mentored

960,000 1,090,000 545,000 2,595,000

OUTPUT 1.4: CNPA Forensic Laboratory equipped, trained and mentored to develop intelligence on heroin manufacturing and trafficking

714,000 811,000 405,000 1,930,000

Output 1.5: Afghan authorities are equipped trained and mentored to interdict smuggled consignments of precursor chemicals

1,383,000 1,570,500 785,500 3,739,000

OUTCOME 1: TOTAL 4,825,000 5,478,500 2,739,500 13,042,000

OUTCOME 2: Enhanced border law enforcement, including regional cross border cooperation

OUTPUT 2.1: Cross border liaison structures (Border Liaison Offices or BLOs) of law enforcement officials established and used at selected high risk locations

2,626,000 2,981,000 1,491,000 7,098,000

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OUTPUT 2.2: Mobile Interdiction Teams established, equipped trained and effectively conducting drug interdiction operations

462,000 525,000 262,000 1,249,000

OUTPUT 2.3: Operational response and capacity to prevent drug and other trafficking through international airports in Afghanistan enhanced

363,000 412,000 205,000 980,000

OUTPUT 2.4: Joint and/or simultaneous operations facilitated between Afghan law enforcement authorities and their regional counterparts

1,148,000 1,303,000 652,000 3,103,000

OUTCOME 2: TOTAL 4,599,000 5,221,000 2,610,000 12,430,000


Sub‐Programme 3: Criminal Justice Reform

2012 2013 2014 TOTAL

OUTCOME 1: Afghan authorities reform criminal justice system in line with international standards and norms OUTPUT 1.1: Support to the legislative reform process, as a permanent consultative process involving Afghan institutions and major experts within the international community.

517,269 517,269 517,270 1,551,808

OUTPUT 1.2: Strengthened legislative and institutional capacity to prevent and combat terrorism

629,770 629,769 629,769 1,889,308

OUTPUT 1.3: National capacity for international judicial cooperation in criminal matters of justice and law enforcement institutions promoted.

546,436 546,436 546,436 1,639,308

OUTPUT 1.4: Measures to prevent and combat trafficking in persons in Afghanistan set in place

463,102 1,095,044 263,103 1,821,249

OUTPUT 1.5: Enhanced operational capacity (including working conditions) of judges and prosecutors in selected provinces.

809,769 809,770 509,769 2,129,308

OUTCOME 1: TOTAL 2,966,346 3,598,288 2,466,347 9,030,981

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OUTCOME 2: Anti‐corruption measures strengthened in line with UNCAC

OUTPUT 2.1: Strengthened professional capacity in the High Office of Oversight

623,102 623,103 623,103 1,869,308

OUTPUT 2.2: Research capacity of HOO enhanced for more effective evidence‐based policy

609,769 609,769 609,770 1,829,308

OUTPUT 2.3: National law harmonized with Afghanistan’s obligations under the UNCAC

449,770 449,769 426,331 1,325,870

OUTPUT 2.4: Strengthen the capacity of CSOs and the private sector to advocate for anti‐corruption enforcement measures

609,769 609,770 609,769 1,829,308

OUTPUT 2.5: Support promotion of integrity by justice and law enforcement bodies with a focus on the implementation of Codes of Conduct

569,770 569,769 369,769 1,509,308

OUTCOME 2: TOTAL 2,862,180 2,862,180 2,638,742 8,363,102

OUTCOME 3: Prison system reformed in line with international standards and norms, with an emphasis on alternatives to imprisonment and pre‐trial detention

OUTPUT 3.1: Improved penitentiary system conditions through the implementation of comprehensive training curricula for prison officials

813,389 813,370 813,389 2,440,148

OUTPUT 3.2: Alternatives to imprisonment and detention established with special focus on women and girls.

510,056 1,010,056 510,056 2,030,168

OUTPUT 3.3: Vocational and educational training established and available to facilitate reintegration for male, female prisoners and juveniles.

409,172 409,173 409,173 1,227,518

OUTPUT 3.4: Health and drug treatment services available for prisoners in selected facilities.

696,606 696,606 696,606 2,089,818

OUTPUT 3.5: Special care for vulnerable groups, including imprisoned women and their children

448,940 448,939 448,939 1,346,818

OUTPUT 3.6: Improve the capacity of the district detention system

529,940 529,939 529,939 1,589,818

OUTPUT 3.7: Juvenile justice system reformed to be in line with international standards

638,121 446,604 246,604 1,331,329

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OUTCOME 3: TOTAL 4,046,224 4,654,687 3,454,706 12,155,617

Sub‐Programme 3 : TOTAL 9,874,750 11,115,155 8,559,795 29,549,700

Sub‐Programme 4: Health and Alternative Livelihood

2012 2013 2014 TOTAL

OUTCOME 1: Increased access to quality drug prevention, treatment and rehabilitation services

OUTPUT 1.1: Selected service providers equipped and skilled to provide prevention and treatment services in priority provinces

1,415,700 1,351,500 1,172,500 3,939,700

OUTPUT 1.2: Workplace drug use prevention and treatment available for ANP

510,000 420,000 420,000 1,450,000

OUTPUT 1.3: Effective information, education and communication on drug use developed

330,000 385,000 385,000 1,100,000

OUTPUT 1.4: Assist MCN and MOPH to ensure there is an inclusive National response to drug dependence developed by Afghanistan

836,000 685,000 685,000 2,206,000

OUTPUT 1.5: Drug use monitoring system in place

400,000 400,000 273,500 1,073,500

OUTCOME 1: TOTAL 3,491,700 3,241,500 2,936,,000 9,669,200

OUTCOME 2: Increased access to quality HIV/AIDS prevention, treatment and care services for drug users (focussed on IDUs), prisoners and persons vulnerable to human trafficking (PVHT)

OUTPUT 2.1: Assist NACP in scaling up the comprehensive package of services for prevention, treatment and care for drug users (focussed on IDUs), prisoners & PVHT

1,400,000 1,332,500 987,700 3,720,200

OUTPUT 2.2: Institutional and civil society capacity strengthened

1,000,000 910,600 750,000 2,660,000

OUTPUT 2.3: Increased availability of data on effective responses to HIV/AIDS

400,000 330,000 330,000 1,060,000

OUTPUT 2.4: Assist MCN, MOPH and MOJ to ensure Afghanization of responses to HIV/ AIDS amongst drug users (focussed on IDUs), in prison settings and among PVHT

500,000 390,000 390,000 1,280,000

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OUTCOME 2: TOTAL 3,540,000 2,952,500 2,257,500 8,750,000

OUTCOME 3: Wider coverage of alternative livelihoods for drug affected communities

OUTPUT 3.1: Integrated / multifaceted AL demonstration projects aimed at breaking households’ linkages with the illicit drug economies.

1,800,000 4,500,000 4,662,300 10,962,300

OUTPUT 3.2: Strengthened MCN capacity on AL policy, project planning and monitoring at central and provincial levels

1,500,000 2,420,900 2,000,000 5,920,900

OUTPUT 3.3: Improved coordination and genuine mainstreaming of AL‐related strategies and programmes in Government, and among Government, multilateral / bilateral donors, and the private sector.

480,800 1,200,000 1,000,000 2680,800

OUTCOME 3: TOTAL 3,780,800 8,120,900 7,662,300 19,564,000


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ANNEX 4 – UN STANDARD LEGAL CONTEXT

Non Liability/Compensation clause UNODC is not liable for any damage, injury, illness or death resulting from the actions of employees of the Government of Afghanistan (the Government) or consultants or other persons contracted by or on behalf of the Government in relation to the implementation of the present programme. No claim for compensation may be made against UNODC for any such damage, injury, illness or death nor for any reimbursement of amounts that may have been paid by the Government as compensation in such event. The Government shall ensure and confirm that adequate compensation coverage for such eventualities exists, and applies to all persons employed by them or engaged by them or on their behalf in relation to this programme. Equipment The Government will defray any customs duties and other charges related to the import of equipment, its transport, handling, storage and related expenses within Pakistan. UNODC‐funded equipment remains UNODC property, until formally transferred or otherwise disposed of, irrespective of who undertakes its procurement. UNODC‐funded equipment may be transferred, with the consent of UNODC, to any entity, at any time during the present programme for the purposes of implementation of the programme. However, the decision on the final disposal of equipment, including the transfer of ownership, remains with UNODC, who shall endeavour to make such decisions in consultation with the party/parties and entity/entities concerned. The entity to which UNODC‐funded equipment has been transferred, is responsible for ensuring that such equipment is used strictly for the purposes of the present programme, as agreed with UNODC, and must arrange for and bear the costs of its proper maintenance. The entity also must arrange for, and bear the costs of, adequate insurance coverage for such equipment. In the case of non‐expendable equipment, the entity shall maintain a detailed inventory of such equipment. Where UNODC makes equipment available to an executing agency, that agency is responsible for ensuring that UNODC‐funded equipment and supplies are used strictly for the purposes of the present programme, as agreed with UNODC, and must arrange for and bear the costs of its proper maintenance. In the case non‐expendable equipment, the executing agency is responsible for maintaining a detailed inventory of the same.

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Copyright UNODC retains copyright and related intellectual property rights for all material (documents, reports, studies, publications, etc) that result from activities carried out under the present programme. Upon written request, at the end of this programme, the Government shall be granted a free‐of‐charge user license over such material. Opt‐out The implementation of UNODC activities under the present programme document is subject to the availability of adequate funding, on a yearly basis. Should required funding not be available, UNODC reserves the right to unilaterally terminate its assistance under this document. Oversight /Audit The present programme is subject to oversight/audit by the United Nations Office for Internal Oversight Services and the United Nations Board of Auditors. UNODC will coordinate the implementation of such oversight/audits and will follow up on the implementation of agreed oversight/audit recommendations. Revisions/Dispute resolution of the programme document The present programme document may be modified by written agreement between UNODC and the Government.

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ANNEX 5: SECURITY COSTS OF OPERATING IN AFGHANISTAN

Following the October 2009 attack on a UN guesthouse in Kabul and the evolution of the security situation, the United Nations in Afghanistan undertook to review its Minimum Operation Security Standards. The result of this review was the adoption of new MOSS security guidelines in January 2010. The more recent incidents at the UN compound in Herat (October 2010) in Mazar‐e‐Sharif (April 2011) and Kandahar (November 2011) and in Kabul (May 2012) illustrates that the security situation is extremely tense in Afghanistan. UNODC in Afghanistan has its headquarters in Kabul and 5 provincials offices, in Kandahar, Herat, Mazar, Faizabad and Jalalabad. All are classified as category A facilities requiring maximum protection. In general terms, the MOSS guideline requires that all category A facilities must have the following:

• 30 meter stand off from the closest vehicle access Point. • Counter Breach Blast Protection, i.e. blast protection with entrance/clearance bay. • Blast and Breach Perimeter wall. • Perimeter reinforced with HESCO or similar measures. • Other measures to maximize stand off distance. • Solid doors and gates with appropriate locks.

Kabul National Office In 2010 the basic layout was rebuild to meet the new security requirements, including structural

changes (boundary walls to create a double perimeter protection around the UNODC buildings etc.). In 2011, as a result of a high‐raised neighbour building, UNODC had to move to another office location. Security Equipment Equipments such as bullet proof vest and helmets, first aid kits, trauma kits, emergency boxes and metal detectors are needed in all the offices. Staff

Additional staff are required to man the exterior gates and clearance bays of the premises, as well as to carry out the necessary protocols for the safe entrance of persons and vehicles to the premises. The United Nations in Afghanistan has outsourced security of offices and guest‐houses (for staff) to British security firms using Nepalese soldiers (Gurkhas).

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Logistics The new MOSS requirements place a heavy strain on logistics and mean a greater need for armoured vehicles (international staff are only allowed to travel in armoured vehicles). UNODC has adequately equipped its regional offices with armoured cars not to see its operational capacity severely impaired. Other required equipment are necessary to enhance communications capability: VHS, HF equipment and telephones. It is estimated that security costs49 for 2012‐2014 will be approximately 10,5 million USD, or close to 9 % of the total budget for this Country Programme, and includes:

‐ 1 P3 Field Security Officer ‐ 2 Security Associates ‐ 21 drivers for international and national staff ‐ 45 security guards for Kabul and provincial offices ‐ Armed guards for Kabul and provincial offices ‐ IDG security service contract ‐ 3 new armored vehicles ‐ Communication equipment (HF, VHF and satellite phones) ‐ Fuel and maintenance of vehicles ‐ Contribution to UN Security (UNODC share)

Since the budget foresees 9 % for security, the last 1 % is a contingency allotment which is kept aside in case of emergencies and it is re‐channeled to the project activities each end of year/or carried forward if not utilized.

49 Security Costs are defined as: direct costs associated with acquisition of goods and services needed to ensure a secure environment for programme activities to be carried out in a high risk locations. They are duplicative of neither other budgeted activities nor of programme support cost (which covers indirect costs).