United Nations Development Programme

Afghanistan Peace and Reintegration Programme (APRP) - UNDP Support

Third Quarter Report 2011

Reconciliation event in (left) and Jawzjan province (right), August 2011

Project ID: 00076674 Project Period: August 2010 – July 2015 Strategic Plan Component: Crisis Prevention and Recovery CPAP Component: Stabilization and Peace Building ANDS Component: Security Total Budget: USD 221,205,252 Responsible Agencies: APRP Joint Secretariat

PROJECT DONORS

Government of Denmark

Government of Germany

Government of Italy

Government of Japan

Table of Contents

Executive Summary ...... 3 I. Context ...... 4 II. Results and Impact ...... 5 III. Implementation Arrangements ...... 25 V. Lessons Learned ...... 28 VI. Future Plans ...... 29 VII. Financial Information ...... 31

Annexes: Annex I: Policy and Knowledge Products ...... 34 Annex II: Training and Capacity Building Outputs ...... 35 Annex III: Risk log ...... 36 Annex IV: Issues log ...... 39

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List of Acronyms

AGEs Anti-Government Elements ANDS Afghan National Development Strategy APRP Afghanistan Peace and Reintegration Programme ART Afghan Reintegration Tracking System CEO Chief Executive Officer CoP Chiefs of Police CPAP Country Programme Action Plan CSO Civil Society Organisation DDAs District Development Assemblies FOC Financial Oversight Committee GoA Government of Afghanistan HPC High Peace Council ISAF International Security Assistance Force JCMB Joint Coordination and Monitoring Board JS Joint Secretariat M&E Monitoring and Evaluation MAIL Ministry of Agriculture, Irrigation and Livestock MoD Ministry of Defence MoF Ministry of Finance MoI Ministry of Interior MoLSAMD Ministry of Labour and Social Affairs, Martyred and Disabled MoPW Ministry of Public Works MOSS Minimum Operating Security Standards MRRD Ministry of Rural Rehabilitation and Development NDS National Directorate of Security NGO Non- Governmental Organisation NIM National Implementation Modality P&R Peace and Reintegration PGs Provincial Governors PGCs Provincial Grants Committees PJSTs Provincial Joint Secretariat Teams PPCs Provincial Peace Committees SGPs Small Grant Projects SOPs Standard Operating Procedures UNAMA United Nations Assistance Mission to Afghanistan UNDAF United Nations Development Assistance Framework VET Vocational Education Training

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Executive Summary

In the third quarter of 2011, the Afghanistan Peace and Reintegration Programme (APRP) – UNDP Support project assisted the Government of Afghanistan (GoA) in supporting peace and reintegration activities undertaken by the GoA through the Joint Secretariat (JS) of the APRP. The project facilitated emerging opportunities for reintegration, provided transitional assistance packages to reintegrees, and supported development initiatives. In doing so, it contributed to community development, promoted stability and security, fostered disarmament, and enhanced good governance.

The UNDP Assistant Administrator, Rebecca Greenspan, visited Afghanistan in July and held high-level policy discussions with the leadership of the APRP JS as well as a number of APRP line ministries. This exchange facilitated greater cooperation and understanding between UNDP and Afghan government counterparts regarding APRP.

In the reporting quarter, UNDP/APRP assisted the Ministry of Finance (MoF) in the day to day management of all three windows of the APRP Trust Fund. The Trust Fund has received a total of USD 142 million. Further, programmatic, logistical, recruitment and capacity development support was provided to the JS.

In this quarter, 799 reintegration candidates joined the programme; overall, 2655 reintegration candidates from 20 provinces had joined the programme as of 30 September 2011. Transitional Assistance was provided to 196 reintegrees in this quarter, taking the total to 1948 reintegrees assisted.

In addition to the challenging security situation and the consequent restrictions on movement and operations, APRP faced certain other challenges. The risks and issues include difficulty in identifying hard-core insurgents, inadequate monitoring capacity, cross-border movement of insurgents, and under-developed capacity in some APRP governance structures.

The important lessons learned are that the needs of reintegrees during the reinsertion phase of the process should be addressed, the strategic impact of the peace process should be measured and used as a barometer of success rather than relying solely on reporting of technical progress, and training and capacity development initiatives should be stressed for APRP staff, especially at the provincial level.

In the coming quarter, the project’s priorities will include training for staff at the central and provincial levels, the implementation of Small Grants Projects (SGPs), continuation of support to demobilization and transitional assistance delivery, and commencement of a preventive audit mechanism.

Key results for the 3rd quarter of 2011:

 Trust Fund and JS technically supported;  Capacity of JS and Provincial Joint Secretariat Teams (PJSTs) developed;  7991Anti-Government Elements (AGEs) reintegrated;  196 reintegrees received Transitional Assistance packages.

1 All figures in the report referring to transitional assistance packages and number of reintegrees have been received from the Joint Secretariat. Third Quarter Progress Report | 2011

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I. Context

The collapse of the Taliban regime in 2001 raised hope among the people of Afghanistan and the international community for the advent of a peaceful, democratic, and stable Afghanistan. The Presidential and Parliamentary elections of 2004, 2005 and 2009, 2010 added to increased expectations in this regard. However, the current security situation in Afghanistan is still fragile in many districts, with the on-going insurgency an impediment to progress in many areas. Growing insecurity and the recurrence of violence affect service delivery, accessibility, development initiatives and employment opportunities.

Through the APRP, the GoA seeks to provide a means for Anti-Government Elements (AGEs) to renounce violence and reintegrate and become a productive part of Afghan society. Provisions for increasing employment, sustainable livelihoods, and linking peace and development are intrinsic components of this peace-building initiative.

The London Conference in January 2010 endorsed the principle framework upon which the APRP is being implemented. At the conference, the international community welcomed the GoA’s commitment to develop and implement an effective peace and reintegration programme through initial national discussions at a grand Consultative Peace Jirga, the results of which were presented to the international community at the Kabul conference. The Consultative Peace Jirga, held in June 2010 in Kabul, included members from numerous factions throughout Afghanistan, and provided recommendations for peace and reintegration initiatives. The APRP was presented to the international community by President Karzai at the Kabul Conference, held in Kabul in July 2010, paving the way for the programme’s initiation. Commitments to APRP by the GoA and the international community were reaffirmed at the Kabul Review Conference held in May 2011.

The programme aims to pursue political means to reconcile and reintegrate combatants, develop the capacity of critical institutions to implement peace-building activities, ensure security and freedom of movement for reintegrees and communities, and consolidate peace by promoting community recovery initiatives, social services, justice, and employment.

The Afghanistan National Development Strategy (ANDS 2008-2012) focuses on security, governance, rule of law and human rights, and economic and rural development as the key target areas for development support in Afghanistan. The strategy also elaborates that lasting peace and stability in the country requires structures of self-governance that are accountable, transparent, and effective. APRP pursues the ANDS priority of security which includes: achieving nationwide stabilization, strengthening law enforcement and improving personal security for every Afghan.

The United Nations Development Assistance Framework (UNDAF) priority area of good governance, peace and security is supported through APRP. By facilitating the reintegration of insurgents, promoting peace and development, and contributing to sustainable economic growth, APRP–UNDP Support progresses efforts towards the achievement of UNDAF outcome 1 – the strengthening of the stabilization process through effective integrated UN support to the Government and communities.

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The project’s outputs also help to achieve the Country Programme Action Plan (CPAP) outcome 1, outputs 1.1 and 1.2. The CPAP outcome 1 states that capacity in state and non-state institutions is increased to contribute to overall stabilization and peace-building. By facilitating APRP support cells in the APRP related line ministries of the Afghan government, UNDP is directly facilitating the achievement of this goal.

The expected results of UNDP’s support to the government-led APRP are that capacity of critical institutions at the national and sub-national level is developed to foster an enabling environment for peace and reintegration activities; APRP is able to effectively implement its Strategic Communications programme; the demobilization and reintegration of ex-combatants and weapons management is undertaken effectively; alternative livelihood projects and development initiatives are delivered to strategic communities; and, funds are channelled to existing national programmes as directed by the Financial Oversight Committee (FOC) to promote community recovery.

The cumulative effect of the attainment of the above listed results is that Afghanistan becomes increasingly peaceful, and communities are able to transition to a more stable society. This will lead to conditions that support economic growth, and a higher standard of living.

The activities of the APRP–UNDP Support project are carried out under the National Implementation Modality (NIM) under the overall leadership of the Chief Executive Officer (CEO) of APRP who is responsible for defining policies, priorities and guidelines of the project.

The GoA, specifically the Line Ministries, directly benefit from assistance in the implementation of the project through an institutional capacity development component. In addition, successful APRP–UNDP Support activities such as assistance to the GoA for the demobilization of insurgent groups, weapons collection, reintegration of ex-combatants and the provision of development support assists the GoA in delivering services to the people and contributes to greater peace and stability in Afghanistan. The beneficiaries of the project include the reintegrated insurgents, their families, youth and vulnerable population groups, women associated with insurgent groups, the Afghan population, and the GoA who have much to gain from the successful implementation of the project. Other beneficiaries include regional neighbours and the wider international community, which benefit from improved security in a more stable Afghanistan.

II. Results and Impact

Output 1 – All three windows of the Peace and Reintegration Trust Fund are successfully managed

Activity result Description of result % of progress rate/delivery 1.1 TF management team in  TF was managed in an 50 % MOF supported efficient and transparent 1.2 APRP oversight is manner undertaken through a

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Project ID 00076674 APRP – UNDP Support | 6 preventive audit mechanism

1.1 TF management team in MOF supported

At the national level, UNDP has supported the management of the APRP Trust Fund, facilitated activities of the JS through capacity development, programmatic assistance, and establishment of an operations team, and extended programmatic and capacity development support to line ministries.

The day-to-day management of the Trust Fund was facilitated by UNDP to ensure transparency and accountability of donor funds. As of 30th September 2011, nine countries had committed a total of over USD 145 million across the three windows of the Trust Fund, and USD 142 million has been received.

The table below provides a breakdown of funds received by donor per window of the Trust Fund:

Donor Received Disbursed Balance Window A (disbursement details not provided by World Bank) USA 50,000,000 Australia 5,940,000 Finland 2,470,000 Sub-total 58,410,000 Window B Japan 52,055,941 10,961,810 41,094,131 Germany 13,605,442 4,689,055 8,916,387 Italy 5,683,656 0 5,683,656 Denmark 2,643,165 0 2,643,165 Sub-total 73,988,204 15,650,865 58,337,339 Window C UK 10,459,408 2,724,093 7,735,315 Estonia 43,085 43,085 0 Sub-total 10,502,493 2,767,178 7,735,315

Grand total 142,900,697 18,418,043 124,482,654

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Cumulative details of disbursement from Window B to APRP are as follows2: Details Amount High Peace Council (HPC) Expenses 39,537 JS Staff Costs 413,178 JS Other Costs 223,389 APRP Conferences 123,991 APRP Cells in Line Ministries 85,848 PJST Staff Costs 258,774 Ministry of Defense (MoD) Salaries 112,116 Float Account 506,040 Transition Assistance 413,395 Sub Total 2,176,268 UNDP Staff Costs 995,647 UNDP Travel Costs 72,519 UNDP Outreach& Public Information 37,990 UNDP Other Costs including GMS 530,840 Sub Total 1,636,996 Advance Payment to HALO Trust 400,000 Advance Payment to JS 8,643,626 Advance Payment to MoF 2,055,729 Sub Total 11,099,355 Expenditure in 2010 738,245 Total funds disbursed from Window B (UNDP) 15,650,865

N.B. Out of the disbursement USD 15.6 million, USD 4.5 million has been booked and recognized as actual expenditure.

Breakdown figures of the advance payments are as follows:

Unit: USD Joint Secretariat No. Item Approved Budget Quarterly Advance 1 HPC Operation 1,849,639 924,820 2 JS Operation 3,000,165 750,041 3 Provincial Operation 3,759,060 939,765 4 Float Account (Rapid Reaction Funds) 1,020,000 255,000

2 Some of the advance payments are already expensed in the implementing partners but not yet recorded in UNDP as expenses

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5 Transition Assistance (90 Day Package) 1,800,000 450,000 6 Small Grant Tier One 3,000,000 750,000 7 Small Grant Tier Two 7,000,000 1,750,000 8 Mobilizing Ulema 3,840,000 960,000 9 Relocation of Senior Commanders 3,000,000 750,000 10 Disengagement Training 1,000,000 250,000 11 NGO OMAR demining project 1,160,000 464,000 12 NGO HALO demining project 1,100,000 400,000 Total 31,528,864 8,643,626

Ministry of Finance No. Item Approved Budget Quarterly Advance 1 APRP Cells in Line Ministries 1,529,116 382,279 Ministry of Public Works (MoPW) Public 2 2,000,000 500,000 Work Corps 3 MoLSAMD Vocational Training 4,480,000 1,120,000 4 FOC Secretariat Operation 213,798 53,450 Total 8,222,914 2,055,729 Notes regarding above tables:

1. Total HPC budget is $2,849,639 of which $1 million was disbursed from Window C. 2. Remaining HPC budget is divided by 2 quarters for the disbursement. 3. 40% of OMAR budget is disbursed in the 1st quarter according to the contract. 4. Total HALO budget is $1,500,000 of which $400,000 was already disbursed directly from UNDP.

5. These advance payments are made under the UNDP National Implementation Modality.

The advance payment which was disbursed to Ministry of Finance is expensed as follows:

APRP Cells ) Line Ministries Expenditure Budget Rate Ministry of Agriculture, Irrigation & Livestock 80,508 648,480 12.41% Ministry of Martyrs, Disabled and Social Affairs 49,323 171,160 28.82% Ministry of Public Works 44,615 184,165 24.23% Ministry of Rural Rehabilitation and Development 27,229 189,215 14.39% National Directorate of Security (NDS) - 170,420 0.00% Ministry of Interior (MoI) - 165,676 0.00% Total 201,676 1,529,116 13.19%

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Other On-Budget Projects3 Projects Expenditure Budget Rate MoLSAMD VET at Badghis 142,300 480,000 29.65% MoLSAMD VET at Other Provinces - 4,000,000 0.00% MoPW Public Work Corps - 2,000,000 0.00% FOC Secretariat Operation - 213,798 0.00% Total 142,300 6,693,798 2.13%

1.2 APRP oversight is undertaken through a preventive audit mechanism

A preventive audit of APRP structures and processes was scheduled for commencement by the end of this quarter. However, it has been delayed due to unforeseen circumstances.

Output 2 – APRP Joint Secretariat successfully implements key components of APRP

Activity result Description of result % of progress rate/delivery 2.1 Programmatic, operational,  JS capacity increased in 50 % and capacity development programme management support provided to JS and coordination 2.2 High Peace Council  Gender strategy further activities are supported 2.3 Outreach and awareness developed, and women are initiatives of NGOs, civil society an integral part of the peace groups, and gender process mainstreaming efforts in support of APRP are facilitated

2.1 Programmatic, operational, and capacity development support provided to JS

In addition to supporting the management of the Trust Fund, UNDP has provided programmatic, logistical, recruitment and capacity development support to the JS. UNDP facilitated the recruitment process of PJSTs in coordination with the JS, Provincial Peace Committees (PPCs), and PG’s offices in the targeted provinces. UNDP staff was embedded in the finance, administration and field operations unit of the JS and played a critical role in coordinating and facilitating the activities of the units at the national and provincial levels.

In an effort to establish efficient operational conditions and capacity for APRP governance structures, emphasis was placed on providing recruited staff with adequate training. An APRP technical training

3 This information is based on AFMIS3 as of 28 September 2011. Some of expenses are not reflected yet to UNDP. Budgetary exchange rates are applied for the USD amounts.

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Project ID 00076674 APRP – UNDP Support | 10 workshop for staff from 22 PJSTs was held on 30-31 July 2011 in Kabul. The workshop aimed to build the capacity of provincial actors in understanding the programme’s objectives, procedures and policies, activities required at the provincial level, coordination mechanisms among provincial agencies and the implementation of demobilization and reintegration processes as well as community development and recovery. It developed technical and functional expertise among the PJST staff with regard to the procedures and policies to be followed in APRP implementation. The functional attributes developed included skills in demobilization, outreach and communications, finance and administration, and development. Further, UNDP/APRP Regional Programme Coordinators (RPCs) and International Security Assistance Force (ISAF) regional staff held a coordination meeting during the workshop to facilitate better cooperation at the regional and provincial levels. Trainings held in Kabul were followed up by field visits and instructional sessions by regional staff, helping to raise the capacity and understanding of these critical sub-national bodies.

JS and UNDP co-chaired a high level consultation session for APRP on 16 August 2011. The event was attended by Ambassadors, Ministers, and representatives of key partner states, APRP line ministries, ISAF and the High Peace Council. The meeting resulted in greater information sharing and mutual understanding of critical APRP issues, and advanced the strategic partnership between UNDP, donor states, and the Government of Afghanistan. As part of UNDP’s sub-national governance cluster, UNDP/APRP also participated in Provincial Board Meetings in Farah and Faryab provinces in an effort to garner support of the Provincial Governors (PGs) for the programme.

2.2 High Peace Council activities are supported

HPC activities and operations were funded from Window C of the Trust Fund, and not directly from the UNDP managed window. UNDP provided initial logistical and operational support to the HPC at the beginning of the Programme, but the HPC is now self-sustained and support is provided directly by the Joint Secretariat.

2.3 Outreach and awareness initiatives of NGOs, civil society groups, and gender mainstreaming efforts in support of APRP are facilitated

APRP was developed to provide a broad and inclusive process to deliver peace and reintegration for all Afghans: men, women, children, minority groups, and victims of conflict. The commitment of APRP towards inclusiveness, respect for diversity, non-discrimination, and gender sensitivity is inspired by United Nations Security Council (UNSC) Resolution 1325 (2000) which was the first formal and legal document that addressed the rights of women in conflict situations and required all parties in any conflict to respect women's rights and support their participation in peace negotiations as well as post- conflict reconstruction. In particular, Article 1 of this Resolution advocates for increased women’s participation at the decision-making level for the prevention, management and resolution of conflict and Article 8 underpins the necessity for adopting a gender perspective when negotiating and implementing peace agreements.

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APRP high-level consultations, Kabul, 16 August 2011

The participation of women is an integral part of APRP based on the conviction that it will not be successful unless all groups, respective of gender, class, age and ethnicity differences are able to participate in the process to reap the benefits of peace. Incorporating these principles, women have been involved in the development and implementation of APRP from the very beginning. The HPC has nine women members, who actively represent Afghan women in APRP related national and international political delegations. APRP has a well-developed gender policy and it is being implemented in line with the gender work-plan as part of the Programme. As per this, there will be at least three women representatives in each PPC. The Ministry of Women Affairs is also involved in APRP implementation and the Director of Women Affairs in each province is automatically included as a member of the PPC.

Gender policy discussion, Kabul, 14 August 2011

Additionally, APRP reintegration strategy emphasizes on addressing the needs of reintegrees’ families during each phase of the programme. As a result of the gender-mainstreaming agenda, it is obligatory that all implementing partners identify special needs of women and provide solutions to those needs as they develop projects under APRP. Further, on 5th June 2011, the FOC approved an APRP budget which included USD 5 million for gender mainstreaming, civil society, and public awareness initiatives. The

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Project ID 00076674 APRP – UNDP Support | 12 capacity of women involved in the various structures of the peace process, especially at the provincial level, is also constantly being developed.

UNDP co-hosted a Gender Policy discussion with the APRP JS on 14 August. The meeting offered an excellent opportunity to APRP partners including; women activists and civil society members to contribute to the development of the APRP Gender Policy. APRP-UNDP Support and Gender Equality project representatives played a key role in facilitation of the discussion, and provided critical technical and policy inputs towards the finalisation of the strategy.

Output 3 – APRP field support is successfully provided

Activity result Description of result % of progress rate/delivery 3.1 APRP field operations team  799 reintegrees joined the 100 % was supported Programme 3.2 Quick-impact livelihood and  20 SGP proposals approved income generation activities at provincial level were facilitated 3.3 Regional and provincial  Total 28 PPCs and 25 PJSTs APRP institutions are are functional established and supported

3.1 APRP field operations team is supported in the implementation of demobilization and reintegration activities

To ensure that ex-combatants are demobilized and reintegrated successfully, UNDP- APRP Support project support is provided for facilitating emerging opportunities and registration of ex-combatants through its provincial and regional presence. UNDP supports the PGs in the sub-national planning and implementation of the programme, playing an especially important role in coordinating programme delivery and processes with the central level. Biometrics and weapons management activities undertaken by partners including MoD, MoI, NDS, and ISAF are facilitated.

Reintegrees in Jawzjan and Sar-e-pul provinces, July 2011

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As of the end of the third quarter, there were a total of 2,655 reintegrees in the programme spread across 20 provinces (799 joined in the third quarter), of which 196 received transitional assistance in the reporting period; in total 1948 reintegrees have received some form of transitional assistance. Negotiations are underway with a further 1728 potential candidates. Of the total number of reintegrees, 226 are commanders. One thousand five hundred thirty three weapons have been collected from the reintegrees so far. Vetting is being carried out on every single candidate to prevent abuse by false beneficiaries as well as to identify those who do not qualify for reintegration.

Key Indicators (Source: JS; as of September 30, 2011)

Reintegrees 2,655

Commanders (of total) 226

Ongoing negotiations with potential reintegrees 1,728

Weapons Collected 1,533

Transitional Assistance provided 1,948

Demobilization and TA update by province (Source: JS)

No Provinces AGEs Weapons Financial Support and TA Farah 63 39 Transition Package: Only non-food items were provided for 30 Ex- AGEs in Farah at price of 66,000 Afs 1 Food/Accommodation/Transportation for 30 Ex-AGEs: 9450 Afs Others: 4750Afs Baghlan 200 11 Governor of has problem with reconcilee list and 2 wants to revise the list; therefore, he hasn’t sent a TA request Badghis 761 664 Transition Packages: In total 261 Ex-AGEs (Jawand 10, Abkamari 30, Moqor 50, Qadis 170 and Qala-e-Nau: 1) received their 90 Day TA at price of 3,944,819 Afs Food/Transport/accommodation of Ex-AGEs from the districts to Qala-e-Nau for biometrics: 164,450 Afs Non-food items for 770 AGEs for Mullah Khan Douran from 3 BalaMorghab: 714,120 Afs Transportation of non-food items from to BalaMorghab: 11,025 Afs Food/accommodation for Khan Douran’sgroup: 65,610 Afs Others: 9205 Afs

TA transferred to 128 reintegrees ,Total ( 1,920,000) Afs Herat 133 45 In total 30 Ex-AGEs from District received their TA for one month only at price of 202,500 Afs 4 Relocation of 30 AGEs with their families under command of Mullah Karim from insecure areas to rather secure places in : 360,000 Afs

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No Provinces AGEs Weapons Financial Support and TA Food/Transportation for 100 Ex-AGEs from Shindand to Herat and back for biometric to cmndr Abdul Khaliq: 2,000 USD TA is under process for 15 reconcilees Faryab 108 61 Food and non-food items were provided for 43 reintegrees (13 from Ghurmach and 30 from Billcheragh) in Faryab with total cost of 6,450 USD 5 TA is on process for 92 reintegrees Sar-e-pul 492 173 19 reconcilees received TA with total cost of $150 once. JS provided AFN225,000 for Sari Pul PPC in order to support groups merged with P&R in early January, 2011. 6 TA is under process for 200 reintegrees 7 Jowzjan 82 43 TA is under process for 82 reintegrees 8 21 12 TA is under process for 21reintegrees 9 Samangan 56 32 TA is under process for 30 reintegrees 10 Ghor 22 16 TA is under process for 21reintegrees Laghman 83 47 43 reintegrees received their three months TA Total 645,000 Afs and 11 currently TA have been on process for 40 reintegrees Kunar 40 16 46 Reintegrees received their three months TA Total 690,000 Afs transferred 12 TA under process for 2 reintegrees 13 Takhar 58 53 TA under process for 58 reintegrees Kunduz 257 197 100 reintegrees received their three months TA total 15,00,000 Afs 14 and TA under process for 103 reintegrees Uruzgan 40 0 Three months TA already transferred to 40 reintegrees Total 600,000 15 Afs 16 Kandahar 83 64 TA under process for 52 reintegrees 17 Nangarhar 28 21 TA under process for 9 reintegrees 18 Zabul 2 TA under Process 19 Helmand 21 TA under process 20 Badakhshan 105 19 TOTAL 2655 1533

The location and distribution of current negotiations and emerging opportunities with potential reintegrees is shown below:

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267

200 174 180

112

72 74 70 78 55 65 58 38 46 24 30 20 12 13

10 1 2 7

Lagh…

Bada…

Ghor

Kand…

Parw…

Nang…

Jawzj…

Helm…

Zabul

Balkh

Logar

Baghl…

Noori… Kabul

Heart

Kunar

Paktia

Kapisa

Faryab

Takhar

Ghazni Sur pol Urzgan

The diagram below shows the cumulative number of reintegrees since October 2010:

APRP Ops Progress Country wide as of Sept 2011 1000 338 900 800 337 700 249 195 600 577 434 500 264 140 400 1 284 431 382 375 300 1728 50 14 104 200 304 221 2655 183 188 100 147 14 61 61 0 Oct Nov Dec Jan Feb Mar Apr May June July Augst Sept Grps in Nego Grps Joined APRP

3.2 Quick-impact livelihood and income generation activities, including SGPs and NGO initiatives, are facilitated

(a) Small Grants Projects

In coordination with the JS, donor countries, and ISAF, effort was placed on the completion of comprehensive Standard Operating Procedures (SOPs) for SGPs to be undertaken throughout the country in priority districts. According to the approved budget for 1390, USD 10 million has been allocated for SGPs. The identification and implementation of SGPs is undertaken in a thoroughly participatory manner, engaging local communities, community development councils, civil society, and government officials. According to the approved Small Grants scheme, projects are divided into two

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Project ID 00076674 APRP – UNDP Support | 16 tiers: Tier I - up to $25,000; and Tier II - up to $200,000. Allocation for tier 1 projects is USD 3 million and USD 7 million for tier 2 for 1390.

Vocational training undertaken in , August 2011

By providing an immediate tangible incentive and bridging the time-gap between demobilization and the completion of larger infrastructure development projects, SGPs encourage and consolidate disarmament and reintegration and show the project’s commitment to developing local communities. The delivery of development projects can promote disarmament, peace and reintegration, reinforce APRP’s standing across communities, and strengthen APRP’s ability to contribute towards conflict resolution. These projects will reinforce the confidence and trust of the local population in the programme and also encourage them to persuade combatant groups to reconcile and reintegrate.

Initially, RPCs were tasked to work closely with provincial stakeholders on dissemination of SGP SOPs and subsequently commence close community consultations in priority districts. Provincial Grants Committees (PGCs), the provincial bodies responsible for approving SGPs, have been established throughout the country, and under the leadership of their respective PGs they have discussed and approved a number of SGP proposals. As of 30 September, 20 SGP proposals had been approved in five provinces, Kunduz, Laghman, Kunar, Jawzjan and Herat; further, 25 more proposals are in the pipeline. Funding for the SGPs approved at the provincial level is to be released by the JS in the near future.

Status of SGPs

District/ # of # of Province Project Type Budget Status Community Reintegrees Beneficiaries 1 LAGHMAN Alishing Re-construction of Pathway 15 500 24,900 Approved by PGC Construction of protectional 2 LAGHMAN Alishang 80 24,056 Approved by PGC wall in Shamkat patawe Re-construction of Balahiasar 3 LAGHMAN Alingar 120 1200 25,000 Approved by PGC canal Re-construction of pashli tak 4 LAGHMAN Alingar 120 1200 25,000 Approved by PGC Balahiasar canal 1,138,200 Construction of Mosque in 5 LAGHMAN Alishang 138 1600 Afg Approved by PGC shamkat of Gulakhail ($ 23,712)

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Construction of protection wall 1,115,000 6 LAGHMAN Alishang 138 1600 Approved by PGC in Shamket of Gulahkhail ($23,229) 7 KUNAR Shigal Reconstruction of Canal 400 25,000 Approved by PGC

8 KUNAR Watapoor Reconstruction of Canal 45 150 25,000 Approved by PGC Construction of walls and 9 KUNAR Asadabad 1800 25,000 Approved by PGC education supply Reconstruction of Qumchi 10 KUNAR Watapoor 80 380 200,000 Approved by PGC Canal 11 KUNAR Ghaziabad Up grading of MCH 250 25000 25,000 Approved by PGC 12 KUNAR Ghaziabad Up grading of Abra Gul School 37 366 200,000 Approved by PGC Reconstruction of Matany 13 KUNAR Shigal 80 380 200,000 Approved by PGC Canal 14 JAWZJAN Darzab Construction of girls school 1688 200,000 Approved by PGC

4 + Essakhai village 04 deep wells, 15 KUNDUZ Chardara surrounding 500 25,352 Approved by PGC 06 small bridges villages Repairing 4 KM road in 16 KUNDUZ Chardara 16 750 24,148 Approved by PGC Aqshakh village 17 KUNDUZ Qalai Zaal Kishani village 11 deep wells 16 500 25,234 Approved by PGC

Aftab luq village 05 deep wells, 18 KUNDUZ Imam Sahib 18 600 25,603 Approved by PGC 08 small bridges Dashti Mulla qulli 11 small and medium 19 KUNDUZ 13 600 25,306 Approved by PGC Archi bridges Cleaning of Karizes (water 20 HERAT Shindand 380 500 24,500 Approved by PGC cannals) in Kariz sabz

Development and community recovery projects

In order to facilitate the reintegration process, a number of proposals for job placement and employment have been put before the FOC. Of these, three proposals have been approved and initiated: (a) HALO Trust proposal for a de-mining project in Baghlan, (2) a Vocational Education Training (VET) project by Ministry of Labour and Social Affairs, Martyred and Disabled (MoLSAMD) in Badghis, and (3) OMAR de-mining project in . The OMAR de-mining project has been approved, and the contractual agreement between OMAR and the GoA was signed in July 2011.

The objective of the HALO Trust project is to facilitate the successful reintegration and provide employment to 180 reintegrees, including training and fulltime employment as humanitarian de-miners by HALO Trust Afghanistan. Initial funding of USD 400,000 was released in March 2011 for the HALO Trust project. By end of August 2011, all 180 reintegrees were recruited, trained and deployed in the provinces of Baghlan, Samangan and Takhar. Subsequently, two mine clearance projects were completed in the province of Baghlan.

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Vocational training, Faryab province, August 2011

The status of the various proposals and projects is shown in the table below (Source: JS):

Community Recovery Project Updates Project # of Province Project Type Status Implementer Beneficiaries Vocational MoSLAMD / 400 Actual training commenced in August. Training KNCTO Badghis In the process of trainee De-mining OMAR 110 identification.

Working as paid de-miners with HALO Baghlan De-mining HALO-Trust 52 Trust de-mining programs. 90 completed training and engaged in Baghlan HALO Trust de-mining jobs. De-mining HALO-Trust 180 51 completed training and engaged in Kunduz HALO Trust de-mining jobs. Vocational Vocational Training completed (from Kandahar MoLSAMD 40 Training MoLSAMD’s own budget) Vocational To be started in September (from Laghman MoLSAMD 90 Training MoLSAMD’s own budget) Total 872

3.3 Regional and provincial APRP institutions, including PJSTs, PPCs, and bank accounts are established and supported

At the sub-national level, PPCs have been set up and approved by the HPC in 27 provinces and PJSTs have been established in 26 provinces in total. PPCs play a key role in conducting outreach with insurgents and local communities and facilitating the implementation of the programme at the provincial level. PJSTs are essential to the local implementation and coordination of APRP activities; a

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Project ID 00076674 APRP – UNDP Support | 19 key priority is the capacity development of PJSTs to ensure that they are able to effectively contribute to APRP objectives.

APRP provincial bank accounts, which facilitate quick access to funds for supporting APRP initiatives throughout the country, have been set up and are functioning in 29 provinces; a central account in Kabul is also fully functional. As per the request of the provincial management, multiple bank accounts have been opened at the provincial level: Float Account (FA), Small Grants (SG), Provincial Operational Expenditures (OE) and Transitional Assistance (TA). SOPs for the bank accounts were disseminated to the provinces. These accounts were used to disburse funding for emerging opportunities, support field missions, and distribute transition assistance packages.

Provincial Bank Accounts have not been established in three provinces: Daikundi, Nuristan and Panjshir. The Joint Secretariat is reviewing the necessity of having the bank accounts in the remaining provinces.

Output 4 – Community recovery successfully achieved through national programmes

Activity result Description of result % of progress rate/delivery MAIL and MRRD supported in  AWP of MAIL project 50 % APRP support activities completed; funds to be transferred in October 2011

In order to support effective programme formulation and implementation as well as efficient disbursement of funds, UNDP will channel approved funding directly to the Ministry of Rural Rehabilitation and Development (MRRD) and the Ministry of Agriculture, Irrigation, and Livestock (MAIL), and coordination meetings were held with MAIL and MRRD in order to establish the appropriate mechanism for this process.

MAIL focused their activities on irrigation and watershed management, reforestation of pistachio and fruit production and processing. Their annual work plan has been approved by the APRP Technical Committee and their first quarter advance is being released. The project will absorb reintegrees and community members. UNDP has supported the MAIL APRP cell in developing the work plan and ensuring the activities are in line with the focus and criteria of APRP. The current total budget for MAIL activities is USD 17 million.

MRRD work plan for APRP is still under discussion and some revisions and clarifications need to be made. MRRD support to APRP will be done through their existing programmes, which are National Solidarity Programme (NSP), National Area Based Development Programme (NABDP) and National Rural Access Programme (NRAP). MRRD will ensure these projects are absorbing reintegrees and community members in areas where the reintegration is taking place.

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In the case of MOLSAMD and MoPW, funds have been channeled through MoF. UNDP and JS are working together to ensure the funding being channeled and the project are being implemented.

Strategic Impact

Western region

The critical effect of APRP has been the impact the programme has made in terms of security improvement, willingness of insurgents to be reconciled, and the attitude of the locals towards the GoA and Taliban.

Herat Province

In Herat province, despite the relatively good progress of APRP activities, the presence of Taliban fighters has been observed in districts of Obeh, , Chisht-i-Sharif, , Kushk-e- Robat Sangi, , and Shindand. The security situation in these red flag districts has remained unchanged over the last three months, and insurgent activities and movement have been regularly reported. The security situation has been deteriorating in Herat city since the transition of security responsibility from international forces to the ANSF. Herat city has experienced dozens of IED attacks during the reporting period causing frustration and raising concern among Herat’s citizens, as some of the explosions took place in front of Herat ANP HQ.

Despite ANSF attempts to take necessary measures to provide better security in the province, 20 people were killed in three separate incidents in various parts of the province. According to interlocutors, security threats still exist in Shindand district, partly in Guzara and Pashtun Zarghun districts. Reports indicate that in the eastern part of , Taliban and other insurgents are campaigning vigorously to recruit more fighters. They have initiated the collection of taxes and have threatened communities in remote villages bordering Pashtun Zarghun district to distance themselves from local government structures. Lack of coordination among the district Governor, police and community leaders are other striking concerns in Shindand district. In Shindand district, Zawol and Azizabad are the two main areas that are highly influenced by Taliban. In addition, a new Mullah, from Zir Koh area, assigned as the Imam of Shindand’s main mosque is advocating in support of the Taliban. Reportedly, the Imam has been instigating the local population against ANSF/IM forces and trying to persuade young men to join the Taliban through the Quetta Shura.

Insecurity and pressure from Taliban has made the Shindand district shura suspend its activities temporarily close down their office. This decision was put into effect after the Secretary of the district shura was threatened and beaten up by Taliban to stop him working with the District shura and the inability of the district authorities to protect and reinforce safety and security in the area.

In recent progress, a newly reconciled group (10 individuals) under the command of Mullah Aminullah, the shadow district governor of Kusan district joined the process. In addition, 11 insurgents under the command of Sufi Tamim joined the government through NDS, and handed over their weapons to Herat NDS. The group was active in Pashtun Zarghun district, where the deterioration of security had Third Quarter Progress Report | 2011

Project ID 00076674 APRP – UNDP Support | 21 increased recently. The reconciliation of this group should have a positive impact on security situation in Pashtun Zarghun district of Herat.

Badghis Province:

The security situation deteriorated in Badghis as well during the reporting period. The locally high- profile assassination of an elder, Haji Abdul Hakim Achakzai, a tribal leader and a reconciled commander in Dara-e-Boom village of Qadis district, shocked many residents. The incident occurred while he was returning from a meeting with the Qadis District Governor, PPC members, Head of the provincial council and tribal elders where he had voiced his support to encourage a group of 100 individuals for Afghan Local Police (ALP) recruitment in Dara-e-Boom district. He was from Bayanzai tribe in Qadis and his killing will create new ethnic tensions.

On a positive note, a senior Taliban leader, Mullah Bahauddin, who was in charge of planning attacks against Afghan National Security Forces (ANSF) and facilitating weapons distribution and suicide-bomb attacks in Ghormach district, was killed by NATO forces. Bahauddin was a key leader in the Taliban hierarchy, working with and Ghormach-based groups. A group of 18 AGEs led by Mullah Obaidullah in Murghab district reconciled through the NDS. Another positive development was the reconciliation of Ghulam Yahya a well known insurgent from Chakarha village (Qala-e-Naw) who used to fight against the IM/ANSF in Dara-e-Boom and Maqur district. Ghulam Yahya recently fled to Iran after being injured by US special operations in Dara-e-Boom.

A visit by the Minister of Labour and Social Affairs, Ms. Amena Afzalai contributed to the inauguration of 13-type vocational projects for 400 reconciled insurgents (150 from Qadis and rest from Abkmary and Muqur districts). Following a visit of the OMAR de-mining agency to Qadis district, 42 reconciled insurgents and their family members have been recruited as de-miners. The recruitment process is ongoing to complete 110 targeted beneficiaries.

The presence of US forces in the area and constant military operations by ANSF and ISAF, particularly in , led a number of fighters to reintegrate. The situation in Bala Murghab is definitely better as a result of the Programme, but impact in other districts is uncertain.

Farah Province

The security situation of is assessed as unstable, in particular Bala Buluk (Shiwan village), remote areas of Pusth-e-Rud, Khak-e-Safid, Purchman and Gulistan districts, where insurgents have established a shadow government with support of the Joint Taliban Commission from the South. Though there were several clean-up operations launched by ANSF/ISAF in the aforementioned districts and several arrests (including foreign elements), which were a serious hit to the local Taliban structure, it did not improve the security situation as much as expected. Farah is the key focus of the insurgency supported by those from the south, therefore the Taliban have made significant changes in command networks in red-flag areas such as Bakwa and Gulistan. A new Shadow Governor called Mullah Zakir has been appointed in Bakwa, and Abdul Rehman Neka was transferred from Bakwa to Bala Buluk. The

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Project ID 00076674 APRP – UNDP Support | 22 change is believed to have been made by the Quetta Shura based in Pakistan, and implemented by senior members of Joint Taliban Commission in Gulistan led by Mullah Sayed Mohammad.

Tribal elders have been trapped between the government on one side and AGEs on the other, and insurgents in the province are under intense pressure by its foreign elements (advisors) to act more violently, including against locals supporting the government. As a result, five civilians [most of them tribal elders] were killed allegedly for supporting the ANSF and APRP.

The existing of foreign elements within insurgent groups, lack of good service delivery to the district level, and finally, links of certain government officials with insurgents for personal interests has deteriorated the security of the province dramatically.

On a positive note, the reconciliation of small groups in the province does change the security of certain areas, but supporting development projects are urgently required to consolidate the gains. So far 63 AGEs joined APRP of which 12 are undergoing vocational training in Farah town and the rest were reintegrated back into their communities. The PPC members were endorsed by HP/JS very recently and it is believed that this will lead to further positive developments in Farah province.

Ghor Province

The security situation in has generally deteriorated during this quarter and is tense and volatile. Infiltration of Taliban from continued in several districts of the province, in particular to Passaband district. The movement of insurgents from Helmand province to of Ghor province remains the main concern for ANP. The two groups that reconciled from Passapand district are under pressure from the Taliban to rejoin the insurgency; they have been forced by the Taliban to pay a huge fine, and provide motorbikes and weapons to the Taliban. The reconcilees only received their TA as a one-off payment, and no development project has been initiated for them due the present security situation in their respective districts.

Further, the uneven relationship between the PG and the security units, particularly NDS, hampered the reconciliation process and discouraged AGEs from joining the Programme. As a positive development, Mullah Mustafa, a very prominent AGE commander in Sharak District (operating along the main road between Herat and Ghor provinces) met with the PG’s representatives including head of PJST, and agreed to join APRP along with approximately 50 fighters. However, it is believed that the insecurity in the province and the relationship between the PG and the security entities will delay his reconciliation.

Northern region

The reporting quarter has witnessed tangible impact as far as local security and stability is concerned in certain areas of the region. There have been 14 reconciliation events where over 230 former insurgents joined APRP. There have also been improvements in terms of institutional capacity development under

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Project ID 00076674 APRP – UNDP Support | 23 which the establishment of PGCs, and initiation of consultations with development bodies such the District Development Assemblies (DDAs) and Community Development Councils (CDCs).

There have been significant improvements in Sari Pul province in particular Sayaad district on the security front. As the PG suggests, almost the entire Sayaad district is now under the control of the government while it was not the case previously. The factors behind this achievement are reconciliation of large numbers of insurgents with APRP, as well as the permanent presence of special forces units in the district. This is a good example of APRP synergy with military activities ensuring reconciliation successes. Mullah Zahir (powerful local insurgent leader) together with 64 fighters has joined the Programme from Sayaad district. This reconciliation event is assessed to have weakened the bulk of the insurgency in the district.

(Above) APRP public information campaign, Sar-e-pul province, August 2011

Similarly, Jawzjan province has made significant progress by inviting two main insurgent groups to the Programme from Khawja Doko district. By reintegrating these groups the security environment in Shibirghan and Dawlatabad districts of Faryab province has improved.

While Faryab had some reconciliation events over the last quarter, the PPC, as part of depute resolution activities, has taken the initiative to resolve a local dispute between two villages of Ziaratgah and Tajikan in Pashtoon , thereby adding to local stability.

Although, remained relatively quiet, Char Bolak district was identified by the PPC as a target district to aggressively implement APRP. Additionally, negotiations have been ongoing with local insurgents and are expected to achieve the reintegration of approximately 100 men in the near future.

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Ceremony on Jawzjan PG’s office for 14 reintegrees who joined the Programme, August 2011

Northeast region

In this region, APRP has had an impact in all four provinces. In the most recent security meeting with Kunduz government officials, the police chief and NDS chief stated that currently only 300 AGEs are present in the area, while there were approximately 1700 insurgents last year. Further, the remaining 300 AGEs are not well organized, and are practically unable to effectively combat national or international forces. The highway connecting Kunduz to Baghlan and Takhar, and the border area of Kunduz Sher khan district is perceived as increasingly secure, with only few minor security incidents during the reported period. The provision of large-scale development projects and creation of job opportunities will consolidate the situation.

In Badakhshan province, community members and government officials feel increasingly secure, and incidents related to the overall insurgency throughout the province, but especially in Kishim, Tagab, Darayem and Argo districts have been reduced by about 80 percent. A large part of the credit for this is due to the reconciliation of 105 men group led by Mawlawi Hadi, Mawlawi Manan, Makhdoom Hasbiallah and Abdul Salam, the prominent members of the Taliban in the province. During the previous month it is estimated that the recruitment of fighters in the area has been negligible, thereby showing the impact of APRP on local perceptions.

Reportedly, the insurgent networks developed in the last two years by Kunduz-based insurgents via Dashti Archi, Khuaja Ghar, Darqad, Kishim, and Darayem districts have been cut off, and recent weeks have witnessed minimal AGEs movement and activity.

Similarly in Baghlan, the current security situation is much better than it has been in the preceding months, and there are very few active insurgent groups currently based in the province. The inclusion of approximately 180 reintegrees and community members in the HALO Trust demining project has further helped promote a positive view of APRP to local communities.

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The situation in is improving and certain new groups have approached the Programme. This positive change occurs after Takhar has been hit hardest with the assassination and injury of several prominent government officials. The presence of an organized drug mafia and criminal networks that operate between the province and neighboring Tajikistan is an important reason that the situation remains unstable.

Other regions (Central, Southeast, South, East)

No insurgents have reconciled so far from the central and southeast regions, but negotiations are underway with a number of insurgents groups. In numerous gatherings organized in various provinces by PPCs, tribal elders, religious scholars and local residents have expressed their support for the peace process. Although insurgents have not yet joined the Programme from the region, elders and religious scholars have actively taken part in negotiations with AGEs and as a result, AGEs groups are in contact with PPCs from Kabul, Parwan, Logar, Wardak, Kapisa, Ghazni and Paktya provinces. This has helped establish a good foundation for promoting the Programme. Further, in Tagab district of , the Safi tribal shura committed to supporting the peace process and pledged to stop insurgent activities in their area.

Through large-scale public awareness efforts in support of APRP, residents of the 10 provinces covered coverage are generally well aware of the peace process. The release of detainees in Logar, Wardak, Khost and Ghazni provinces has helped gain support of the provincial elders and local population for the Programme.

In the southern region the political impact of APRP, particular through the timely regional conference held in September 2011 in Kandahar, has helped create momentum for the implementation of the Programme. There has been some reintegration progress, and the establishment of PPCs, when constituted with effective local leaders, has proved to be a particular asset in promoting local peace initiatives, negotiations and outreach with AGEs. However, beyond technical level progress, the strategic impact of the peace process is not yet clear in the region, and extensive efforts need to be continued to generate programme results.

Despite the political and security obstacles in the eastern region, the Programme is moving forward. Cross-border insurgent activity and movement from Pakistan makes the process very difficult in this region. High level communication and exchanges between insurgent commanders and community elders are ongoing in multiple provinces in pursuit of reconciliation.

III. Implementation Arrangements

The project is managed according to NIM of the UNDP. The GoA has designated a CEO to lead and implement the programme activities. Within this overall structure, a Project Board has been established to oversee smooth implementation– this will include such functions as overall guidance, policy support, coordination, review of the project’s progress, approval of work plans, and the taking of necessary decisions to implement the project’s activities in a timely manner. The project board membership will Third Quarter Progress Report | 2011

Project ID 00076674 APRP – UNDP Support | 26 be the CEO of APRP, the MoF, UNDP and contributing donors; as per agreement, the FOC meetings will function as the project board meetings.

APRP-UNDP Support is implemented under the governance and management structure of APRP. The UNDP Trust Fund Window is managed by a UNDP deployed Trust Fund Manager. The Trust Fund Manager in the day-to-day management is accountable to the APRP management. Decision-making vis-à-vis financial resources allocation takes place through the FOC.

Programmatic support to the JS is provided by the UNDP Technical Assistance and Coordination Team at the central level and UNDP/APRP regional staff at the sub-national level.

By making the line ministries the primary executing bodies for APRP, APRP–UNDP Support is designed to give increasing ownership of activities to the GoA. Further, as an exit strategy, the project aims to transfer the bulk of APRP work into national ownership.\

IV. Challenges: Risks & Issues

The following section analyses project risks and issues that had an impact on results during the reporting period, and how they have been addressed by the project.

Risks

Insecurity APRP and the HPC is a direct and high profile target of insurgents and was specifically mentioned in the Taliban Spring Offensive declaration in May 2011. The assassination of Professor Rabbani, Chairman of the HPC, was a setback to the peace process and is likely to adversely affect the Programme. As evidenced, APRP implemented in high threat conditions in highly insecure provinces and districts, with the targeting and assassination of personnel a strong possibility. Targeting of APRP personnel is a grave personal risk to all concerned. Further, the risks and contingent security measures may reduce the ability of staff to deliver, monitor and evaluate programme activities on the ground, especially in remote areas. Risk management procedures are in place to respond to this very insecure environment that may potentially limit the mobility of personnel, especially in the provinces. This could hamper the programme-delivery ability of personnel, for example, by making it difficult to escort government counterparts in the field. However, acknowledging the primacy of protecting programme personnel, United Nations Department of Safety and Security (UNDSS) regulations are always followed, all compounds are compliant with safety regulations, and movement is with police escorts and in armoured vehicles. Further, coordination is undertaken with international and national security forces.

Arbaki and reintegrees conflicts In some areas where Arbakis are present, personal disputes between arbaki members and reintegrees due to past associations have hampered the Programme’s success. Provincial authorities are attempting to resolve these issues, but the situation nonetheless slows down APRP efforts until local disputes are resolved.

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Donor pressures and earmarking of funds APRP is led by the GoA, but relies entirely on funding from donors. Consequently, donor fatigue, domestic political pressures, and earmarking of donor funds are a significant risk to sustainability of the programme. Given the sustained commitment required for building peace in Afghanistan, donor fatigue and domestic pressures could cause a decrease in international contributions for APRP beyond one year, as is already evidenced by the reduction in financial commitment of some donors compared to the first year. This would have a critical impact on the programme’s sustainability. Further, earmarking of donor funds can cause inefficiency in programme implementation as donor priorities may differ from GoA’s priorities. In response, considerable lobbying with donor embassies and extensive consultations on all APRP initiatives and expenditures are undertaken to ensure support for the programme. These efforts seem to be achieving results as a number of current donors have committed to supporting APRP next year, and there are also new donors who have iterated their support.

Identification of insurgents Besides AGEs, which are the target group of APRP, there are a number of Illegal Armed Groups (IAGs), and other armed actors in Afghanistan that are not insurgents, in that they do not seek the overthrow of the current government. Rather, these are groups and individuals who may carry weapons primarily for their own security instead of subversive or illegal activities. In addition to the plethora of armed people, robust vetting and verification mechanisms are yet to be in place. Consequently, it is difficult to clearly identify hard-core insurgents entering the programme from those people who are not insurgents, but claim to be so in order to gain monetary benefits through APRP.

If non-insurgents form a large part of the reintegrees, it may present a skewed picture as to the success and effects of the programme. In addition, it would be a financial benefit for people who are not the legitimate target groups, perhaps thereby draining funds away from real insurgents. In response, Vetting SOPs have been established, and security agencies are cooperating on the matter. However, it is unclear if the planned mechanisms will be adequate to effectively mitigate the risk. Apart from support provided to the SOPs, this is beyond the scope of the project to mitigate.

Lack of support from provincial actors APRP delivery is primarily at the provincial level; therefore, PGs and other provincial level actors play a crucial role in the success of the programme. Provincial actors, such as PGs and Chiefs of Police (CoPs), in some provinces are not able or willing to provide the robust support required for successful implementation of APRP. APRP cannot be effectively delivered without the support of the PG. The success of the programme depends on the buy-in of the PG, without this the programme will stall. UNDP/APRP has actively participated in Provincial Board Meetings throughout the country to lobby PGs and CoPs for their support. The JS is pursuing this effort to ensure that delivery at the provincial level is enhanced.

Cross-border movement and support for insurgents Afghanistan has a porous border with Pakistan, and cross-border movement is quite easy. Many AGEs/insurgents, especially in the Southern and Eastern regions, come from across the Afghanistan- Pakistan border; frequent cross-border movement of insurgents hinders the ability of Afghan governance structures to promote peace initiatives. APRP will not succeed if support from Pakistan and cross-border movement and supply lines of insurgents is not curtailed. This movement allows insurgents to re-supply and rest in Pakistan, and return to Afghanistan to cause instability. Further, cross-border support to the Haqqani network and the Taliban limits the success achievable by the

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Programme, which focuses on groups based in Afghanistan. This issue is beyond the scope of the project to mitigate.

Issues

Inadequate monitoring capacity Monitoring and Evaluation (M&E) of APRP activities are critical to promote transparency as well as provide a meaningful baseline against which to measure progress. Current M&E systems of APRP are inadequate. Lack of proper M&E systems make it difficult to measure progress and impact of APRP initiatives in addition to being unable to ensure transparency. To deal with this issue, an M&E unit is being set up in the APRP JS. M&E functions have been specified in the role of PJSTs for provincial activities such as Small Grants. In addition, an independent monitoring and audit firm will be hired to ensure transparency and accountability of APRP structures and activities.

Security and office upgrades Some of the regional offices of APRP-UNDP Support are closed due to non-compliance with UN Minimum Operating Security Standards (MOSS) requirements. This implies that some regional staff members are hindered in terms of office equipment, power supply, internet access and other similar logistical necessities. Security upgrades need to be speeded up and suitable office space acquired to allow staff members to function at optimal capacity. Office capacity in terms of equipment, transportation, and staff is also below effective in some regional offices.

Delayed disbursement of SGP funds Although SGP proposals are approved at the provincial level by PGCs, due to some proposals being incomplete and outside the procedures and requirements set in the SOP, funding was not disbursed for these proposals. Consultations are underway between the JS, PJSTs and RPCs so as to facilitate the quick fulfilment of SGP criteria; funding for proposals should be released early in the next quarter.

V. Lessons Learned

Focus on reinsertion phase and utility of SGPs

The programme design had not made adequate provisions for meeting the needs of reintegrees during the reinsertion phase of the peace and reintegration process. After the distribution of transitional assistance packages in the immediate demobilization period and before the advent of longer-term development and recovery initiatives, the need for medium-term livelihoods and income generation support to reintegrees and their communities became evident during the course of the reporting quarter. As line ministries were slow to initiate projects to address this need, comprehensive SOPs for SGPs were developed which will address this gap.

Further, the need for the identification and implementation of these projects to cater to reintegrees and communities, through a localised and participatory approach was highlighted through discussions and consultations with local government officials, and Civil Society Organisations (CSOs).

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Need for decentralization

The centralization of programme delivery mechanisms in Kabul may be hindering the delivery of the programme’s activities at the sub-national level. Therefore, it may be prudent to further strengthen provincial or regional authority and structures which will allow for quick responses to emerging opportunities for reintegration. To support this, recruitment of provincial level posts was accelerated in order to ensure that strong local systems are highly responsive and have adequate capacity.

Capacity development and training requirements

Although staffing needs were met to a considerable extent, a gap in policy awareness of APRP staff especially at the provincial levels was evident. To mitigate this knowledge gap in a specific policy environment within which APRP operates, it is advised that extensive knowledge and technical training events be scheduled for all recruited staff. The time gap between recruitment and training should be reduced as much as possible, with training workshops scheduled immediately after recruitment of staff.

Strategic impact and analysis

Current reporting on APRP activities is focused on technical aspects of implementation, and does not adequately measure the strategic impact of APRP. As the progress of the peace process should be measured by the qualitative change in factors such as security and local perceptions towards the GoA, the reliance on reporting quantitatively on technical aspects of the programme does not give a comprehensive picture as to the impact of APRP. Therefore, effort should be placed on analysing the qualitative changes in the security environment as a result of APRP.

VI. Future Plans

UNDP will continue to support emerging opportunities for peace and reintegration throughout the country. UNDP/APRP will emphasize the capacity development and training of JS and PJST staff on technical aspects of the programme so that these structures can become self-reliant and sustainable in operational terms. Assistance will be provided to the MoF in the day-to-day management of the Trust Fund. In addition, capacity of the MOF unit supporting the Trust Fund will be strengthened.

Support to demobilization and transitional assistance activities will continue across the country, and SGPs will be facilitated in selected provinces on a priority basis, so that the gap in the reinsertion phase is addressed.

Programmatic support will be extended to MRRD and MAIL, and a direct funding mechanism will be set up from UNDP to the two ministries, thereby bypassing any delay that may be caused by the use of the government treasury.

Funds will also be channelled for initiatives by civil society groups and NGOs in support of the peace process and gender mainstreaming efforts linked to APRP.

Efforts are underway to retain the services of an independent monitoring agent audit firm that will conduct a preventive audit of APRP governance structures, procedures, and activities at the national

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Project ID 00076674 APRP – UNDP Support | 30 level as well as in all the provinces to ensure accountability and transparency of the programme. It is estimated that the preventive audit will be initiated tentatively from 1st November, 2011.

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I. Financial Information

Table 1. Total Income and Expenditure

INCOME EXPENDITURES BALANCE

Cumulative Total Cumulative Total Received Total Total Total Expenditure as Total Donor Expenditure as of minus Total Commitment Received Receivable of 3rd Quarter Expenditures Dec-2010 Expenditures 2011

Denmark 5,286,337 2,643,165 2,643,172 0 2,643,165

Germany 13,605,442 13,605,442 0 235 235 13,605,207

Italy 5,683,656 5,683,656 0 0 5,683,656

Japan 52,055,941 52,055,941 0 738,245 3,813,030 4,551,275 47,504,666

Total 76,631,376 73,988,204 2,643,172 738,245 3,813,265 4,551,510 69,436,694 Note: i) Expenditure reported for 2011 is provisional. ii) Income received in currency other than USD is approximated to USD based on UN operational rate of exchange.

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Table 2: Expenditure by major outputs (2011)

Cumulative Budget (AWP Delivery Project Output Expenditure as of 3rd 2011) Rate Quarter 2011

Output 1: The Peace and Reintegration Trust Fund (P&RTF) is efficiently 800,000 179,579 managed GMS 56,000 12,571

Sub-total Output 1 856,000 192,150 22.45% Output 2: Joint Secretariat successfully coordinates the implementation of key 9,107,394 998,059 components of APRP GMS 637,518 69,864

Sub-total Output 2 9,744,912 1,067,923 10.96% Output 3: APRP field activities undertaken effectively in order to facilitate peace 16,429,299 1,178,209 at the local level GMS 1,150,051 82,475

Sub-total Output 3 17,579,350 1,260,684 7.17% Output 4: Community recovery and stability is achieved through national 27,601,919 0 programmes GMS 1,932,134 0

Sub-total Output 4 29,534,053 0 0.00% Output 5: UNDP Technical Support and Coordination is successfully provided for 3,657,114 1,207,952 APRP GMS 255,998 84,557

Sub-total Output 5 3,913,112 1,292,509 33.03% Grand Total 61,627,427 3,813,265 6.19%

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Table 3: Expenditure Status (by donor 2011)

Cumulative Budget (AWP Delivery Donor Project Output Expenditure as of 2011) Rate (3rd Quarter 2011) Output 4: Community recovery and stability is achieved through 2,470,248 0 0.00% Denmark national programmes GMS 172,917 0 0.00% Sub Total 2,643,165 0 0.00% Output 4: Community recovery and stability is achieved through 3,948,928 0 0.00% Italy national programmes GMS 276,425 0 0.00% Sub Total 4,225,353 0 0.00% Output 2: Joint Secretariat successfully coordinates the 1,849,639 220 0.01% implementation of key components of APRP Output 3: APRP field activities undertaken effectively in order to Germany 8,862,000 0 0.00% facilitate peace at the local level GMS 749,815 15 0.00% Sub Total 11,461,454 235 0.00% Output 1: The Peace and Reintegration Trust Fund (P&RTF) is 800,000 179,579 22.45% efficiently managed Output 2: Joint Secretariat successfully coordinates the 7,257,755 997,839 13.75% implementation of key components of APRP Output 3: APRP field activities undertaken effectively in order to 7,567,299 1,178,209 15.57% Japan facilitate peace at the local level Output 4: Community recovery and stability is achieved through 21,182,742 0 0.00% national programmes Output 5: UNDP Technical Support and Coordination is successfully 3,657,114 1,207,952 33.03% provided for APRP GMS 2,832,544 249,451 8.81% Sub Total 43,297,454 3,813,030 8.81% Grand Total 61,627,427 3,813,265 6.19%

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Annexes

Annex I: Policy and Knowledge Products

Name of Project: APRP – UNDP Support Year: 2011

Total Stakeholders Date of SN. Policy/Knowledge Products Authors Budget or Consultations Completion Cost in USD 1

2

3

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Annex II: Training and Capacity Building Outputs

Project: APRP-UNDP Support Year: 2011

Training or Capacity Development Date and Beneficiary Number Impact Total Cost or SN Outputs/Event Location Organizations Trained Budget in USD 1. APRP technical training workshop for PJSTs 30-31 July 2011, Kabul PJST staff from 22 100 Beneficiaries well provinces versed in technical aspects of APRP 2. APRP Gender policy discussion 14 August 2011, Kabul CSOs, JS, UNDP Development of APRP gender policy

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Annex III: Risk log

Project Title: UNDP-APRP Support Award ID: Date: 28 September 2011

Date Submitte Impact & Countermeasures / # Description Identifie Type Owner d Status Probability Management response d by 1 APRP is implemented in high January Security Targeting of APRP personnel is a For UN staff, UN security APRP Project Ongoing threat conditions in highly 2011 grave personal risk to all regulations are followed, Manager insecure provinces and concerned. Further, the risks and compounds are MOSS districts, with the targeting contingent security measures compliant, and movement is and assassination of reduce the effectiveness of staff with police escorts and in personnel a strong to deliver, monitor and evaluate armoured vehicles. Further, possibility. programme activities on the coordination is undertaken with ground. international and national security forces. Probability: high

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Date Submitte Impact & Countermeasures / # Description Identifie Type Owner d Status Probability Management response d by 2 Donor fatigue, domestic January Financial Given the sustained commitment Considerable lobbying with APRP Project Ongoing political pressures, and 2011 required for building peace in donor embassies and extensive Manager earmarking of donor funds Afghanistan, donor fatigue and consultations on all APRP are a significant risk to domestic pressures could cause a initiatives and expenditures are sustainability of the decrease in international undertaken to ensure support programme. contributions for APRP beyond for the programme. one year. This would have a critical impact on the programme’s sustainability. Further, earmarking of donor funds can cause inefficiency in programme implementation as donor priorities may differ from Afghan priorities.

Probability: low

3 Difficult to clearly identify April Regulato If non-insurgents form a large Vetting SOPs have been APRP Project Ongoing hard-core insurgents 2011 ry part of the reintegrees, it may established, and security Manager entering the programme present a skewed picture as to agencies are cooperating on the from those people who are the success and effects of the matter. However, it is unclear if not insurgents, but claim to programme. In addition, it would the planned mechanisms will be be so in order to gain be a financial benefit for people adequate to effectively mitigate monetary benefits through who are not the legitimate target the risk. Apart from support APRP. groups, perhaps thereby draining provided to the SOPs, this is funds away from real insurgents. beyond the scope of the project to mitigate. Probability: high

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Date Submitte Impact & Countermeasures / # Description Identifie Type Owner d Status Probability Management response d by 4 Provincial actors, such as April Strategic APRP cannot be effectively Beyond the scope of the project APRP Project Ongoing PGs and CoPs, in some 2011 /Political delivered without the support of to mitigate. Manager provinces are not able or the PG. The success of the willing to provide the robust programme depends on the buy- support required for in of the PG, without this the successful implementation programme will stall. of APRP. Probability: medium

7 The capacity of the JS, April 2011 Operatio The lack of capacity leads to slow Recruitment and provision of APRP Project Ongoing PJSTs, and line ministries nal delivery of APRP processes on logistical requirements has been Manager needs to be developed the ground. This could cause undertaken for APRP considerably, and will potential reintegrees to become governance structures at the require time and substantive averse to joining the programme, national and provincial levels inputs. and it could lead those already and is nearing completion. joined to lose trust and return to the insurgency. Capacity development and training workshops have been organized for Heads of PJSTs Probability: high and PPCs, and Regional Programme Coordinators. Further technical workshops are planned for all PJST members.

8 Frequent cross-border May 2011 Environ APRP will not succeed if support Beyond the scope of the project APRP Project Ongoing movement of insurgents mental from Pakistan based elements to mitigate. Manager hinders the ability of Afghan and cross-border movement and governance structures to supply lines of insurgents is not promote peace initiatives. curtailed. This movement allows insurgents to re-supply and rest in Pakistan, and return to Afghanistan to cause instability.

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Annex IV: Issues log

ISSUES LOG Date: 15 September 2011 Project: UNDP-APRP Support

ID Type Date Description Status/Priorit Status Author Identified y Change Date March 2011 Lack of adequate M&E capacity for APRP field activities Medium Project Manager

May 2011 APRP was originally designed with inadequate provisions High Project Manager inbuilt for the reinsertion phase

April 2011 Security and office upgrades required to allow more effective High Project Manager regional support

Third Quarter Progress Report | 2011