Special Inspector General for

Afghanistan Reconstruction SIGAR

OFFICE OF SPECIAL PROJECTS

SCHOOLS IN KUNAR PROVINCE: OBSERVATIONS FROM SITE VISITS AT 7 SCHOOLS THAT RECEIVED U.S. RECONSTRUCTION FUNDS

JULY 2017 SIGAR-17-53-SP

July 14, 2017

The Honorable Jim Mattis Secretary of Defense

General John W. Nicholson, Jr. Commander, U.S. Forces–Afghanistan and Commander, Resolute Support

This report is the third in a series that details our findings from site visits at U.S.-built or – rehabilitated schools across Afghanistan. The 7 schools discussed in this report were either constructed or rehabilitated using U.S. taxpayer funds provided by the Department of Defense’s (DOD) Commander’s Emergency Response Program (CERP) between 2007 and 2009. In a 2016 audit report, SIGAR estimated that DOD spent approximately $142 million in CERP funds on 2,284 projects to support primary and secondary education between fiscal year 2004 and fiscal year 2014. The purpose of this Special Project review was to determine the extent to which schools constructed or rehabilitated in Kunar province using CERP funds are open and operational, and to assess their current condition. We estimated that the schools we visited in Kunar province cost taxpayers a total of $1.4 million.

SIGAR previously reviewed schools constructed and funded by the U.S. Agency for International Development in Herat and Balkh provinces. In general, SIGAR’s observations from its site visits to these schools indicated that many schools suffered from structural and operational deficiencies and had issues related to student and teacher absenteeism. Our assessment of the general usability and the structural and operational conditions for the 7 schools that received CERP funding in Kunar found that most of the schools appeared structurally sound, safe, being used, and were well attended. However, we found that some schools faced unsanitary conditions, lacked reliable electricity, and were at risk of structural damage due to the high prevalence of earthquakes in the region.

We provided a draft of this review to DOD for comment on May 12, 2017. SIGAR worked closely with DOD CERP subject matter experts to verify the projects and data associated with the seven schools reviewed in this report. DOD officials also contributed technical comments to all draft versions of the report.

We conducted our work in Kunar and Kabul provinces, Afghanistan, and in Washington, D.C. from March 2016 through May 2017 in accordance with SIGAR’s quality control standards. These standards require that we carry out work with integrity, objectivity, and independence, and provide information that is factually accurate and reliable. For more information on the policies and procedures and quality control standards for conducting special project work, please see SIGAR’s website (www.SIGAR.mil). SIGAR performed this special project under the authority of Public Law No. 110-181 and the Inspector General Act of 1978, as amended.

Should you or your staff have any questions about t this project, please contact Mr. Matthew Dove, Director of Special Projects, at (703) 545-6051 or [email protected].

Sincerely,

John F. Sopko Special Inspector General for Afghanistan Reconstruction

The United States has made significant investments in Afghanistan's education sector since the fall of the Taliban. Specifically, as of September 30, 2016, the U.S. Agency for International Development (USAID) reported that it had disbursed approximately $868 million for education programs in Afghanistan.1 While the majority of U.S. programs to support primary and secondary education in Afghanistan have been financed and managed by the U.S. Agency for International Development (USAID), the Department of Defense (DOD) has supported primary and secondary education since FY 2004 through the Commander’s Emergency Response Program (CERP). From FY 2004 through FY 2014, DOD, through CERP, spent approximately $142 million in CERP funds on 2,284 projects that supported primary and secondary education.2 This review is the third in a series to assess the current condition and usage of the schools in Afghanistan that received U.S. reconstruction funding.3 This review focuses on 7 schools that received CERP-funds in Kunar province, Afghanistan, estimated to cost taxpayers approximately $1.4 million.4 As authorized by Congress, CERP enables military commanders in Afghanistan to respond to a variety of urgent humanitarian relief and reconstruction requirements within their areas of responsibility by carrying out projects intended to immediately assist the Afghan population.5 Per DOD guidance, education is one of twenty approved CERP project categories. Education projects implemented by United States Forces-Afghanistan (USFOR-A) included the construction or rehabilitation of local schools, minor repairs to existing facilities, and the purchase and distribution of textbooks, desks, school tents, and miscellaneous school supplies. In 2016 DOD reported to SIGAR that its efforts to help build Afghanistan’s education system were in support of its counterinsurgency mission that concluded with the end of Operation Enduring Freedom-Afghanistan in December 2014.6 Section 1230 of the National Defense Authorization Act for Fiscal Year 2008, Pub. L. No. 110-181, required DOD, in coordination with several other U.S. government agencies, to report to Congress on the U.S. government’s progress toward stability and security in Afghanistan. This included an

1 SIGAR, Quarterly Report to the United States Congress, September 30, 2016, p. 207. 2 DOD tracks its use of CERP funds by 20 different project categories, including education. DOD used CERP funds for a diverse range of education projects, including construction or rehabilitation of school buildings, the purchase of textbooks for students, and the provision of furniture and supplies to local educators. In 2016, SIGAR, using the CERP projects that DOD identified in the education project category, determined which projects supported primary and secondary education by analyzing the project descriptions DOD provided for each project. Based on our analysis, DOD’s efforts included 3,286 individual CERP projects that supported a variety of education-related activities. These projects varied widely in size and scope. The approximately $142 million DOD spent only covered 2,284 of the 3,286 CERP projects we identified. We could not identify funding amounts for the other 1,002 CERP projects. See SIGAR, Primary and Secondary Education in Afghanistan: Comprehensive Assessments Needed to determine the Progress and Effectiveness of Over $759 Million in DOD, State, and USAID Programs, SIGAR 16-32-AR, April 26, 2016. 3 SIGAR, Schools in Herat Province: Observations from Site Visits at 25 Schools, SIGAR 17-12-SP, November 4, 2016; SIGAR, Schools in Balkh Province: Observations from Site Visits at 26 Schools, SIGAR 17-32-SP, March 28, 2017. 4 A total of four CERP projects funded the construction or rehabilitation of the 7 schools we visited in Kunar province. The total disbursed cost for these four projects was $1.86 million. However, we estimated the total amount spent by CERP on these 7 schools to be $1.4 million because two of the projects funded additional schools that we did not visit. For additional information on CERP project costs see appendix I. 5 Approved CERP project categories include transportation; agriculture; healthcare; water and sanitation; economic, financial, and management improvements; education, and others. In Afghanistan, CERP funds have been used to implement projects in all of Afghanistan’s 34 provinces. 6 See SIGAR 16-32-AR. To support this statement in the audit report, DOD provided a copy of its Joint Publication Field Manual 3-24: Counterinsurgency Field Manual. This guidance notes that addressing essential services, including schools, can be a means of promoting socio- economic growth with the goal of winning over target populations through improvements to their quality of life. Additionally, the manual lists building schools as a key activity to provide overt and direct benefit to a community and to begin the process of establishing the legitimacy of the host national government.

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assessment of key indicators of economic activity, such as roads, education, healthcare, agriculture, electricity, and unemployment and poverty levels “that should be considered the most important for determining the prospects of stability in Afghanistan.”7 Published pursuant to section 1230, DOD’s semi-annual Report on Progress Toward Security and Stability in Afghanistan included progress updates on combined U.S. government efforts in education. DOD, with input from the Department of State, the U.S. Agency for International Development, and other U.S. government agencies, published 14 reports pursuant to section 1230 between June 2008 and October 2014.8 In our 2016 review of the education sector in Afghanistan, we found that most discussions in these reports had little to do with DOD education-related efforts and were limited to USAID efforts to include outputs such as the numbers of teachers trained, schools constructed, textbooks printed, or activities such as capacity building within the Afghanistan Ministry of Education (MOE). According to DOD, because USAID was the lead U.S. agency for development, and because DOD did not have a specified education program, the section 1230 reports primarily highlighted USAID’s contribution to the education sector. DOD officials told us in October 2015 that the department was not planning at that time to invest in Afghanistan’s education sector, as DOD’s mission has transitioned to training, advising, and assisting Afghan security forces and counterterrorism operations. However, local commanders may occasionally implement small-scale CERP education projects near enduring U.S. bases in Afghanistan.9 As part of our ongoing examination of the Afghan education sector, we initiated this special project to determine whether schools in Kunar province that appear to have received CERP funds were open and operational, and to assess their condition. This review is not an assessment of CERP projects, but rather a review of the operational and structural status of schools in Afghanistan that were either built or rehabilitated using CERP funds. To accomplish our objectives, we identified schools that received CERP funding for site inspection using a SIGAR-consolidated dataset on CERP programs that identifies obligation and disbursement data for all CERP projects through the second quarter of fiscal year 2015. We decided to conduct site inspections in Kunar province based primarily on the total number of schools that were constructed or rehabilitated in the province. We visited a total of 11 such schools. To ensure the schools we visited were CERP-funded schools, we worked closely with DOD CERP subject matter experts to cross-reference school location data and photographs of school signage taken by site inspectors with internal DOD databases. Based on this review, we were able to verify that 7 schools received CERP funding for the construction of schools. For purposes of this report, we conducted our analysis only on those 7 schools that we were able to verify received CERP funding for school construction or rehabilitation. In order gain access to schools, SIGAR formally requested authorization letters from the MOE to allow access for our site inspectors. The MOE provided the authorization letters and then sent a letter to the provincial educational directorate in Kunar requiring that school districts cooperate with SIGAR inspectors on the ground. To determine the estimated amount of CERP funds spent on the schools we visited in Kunar we obtained updated financial data from DOD for the 4 projects that funded the 7 schools that are the subject of this report. We worked jointly with an Afghan civil society organization to perform limited inspections of schools in Kunar from March 28 through April 4, 2016. Our site visits lasted for approximately 1–2 hours

7 National Defense Authorization Act for Fiscal Year 2008, Pub. L. No. 110-181, § 1230, as amended. 8 The National Defense Authorization Act for Fiscal Year 2015, Pub. L. No. 113-291, repealed the section 1230 requirement, which was superseded by section 1225 of that Act. Although section 1225 requires that DOD report on enhancing security and stability in Afghanistan, it does not include an assessment of progress on education. 9 SIGAR, Primary and Secondary Education in Afghanistan, SIGAR 16-32-AR, April 26, 2016.

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and were conducted during normal school days and operating hours. At each site visit, we observed and recorded information about school resources and structures, completed standardized survey questionnaires, and, where available, interviewed school officials and community members.10 We also utilized Global Positioning System (GPS)-enabled cameras to obtain geospatial coordinate- and date/time-stamped photographs for each school. Through this process, we confirmed location information, assessed general operations and usability, and identified potential problems at each facility. For additional information on our methodology, see appendix I. While we cannot project conclusions from a single site visit to a school, our observations provide valuable insight into the conditions and operations of these schools in Kunar province on a normal school day.

CURRENT STATE OF THE AFGHAN EDUCATION SYSTEM AND RECENT INVESTIGATIONS OF CORRUPTION

The MOE is responsible for administering the Afghan education system up to the college level. The system consists of general education, Islamic education, technical and vocational education, teacher training, and literacy. General education consists of three levels: 11 1. Primary Education: Grades 1 through 6, where students age 7 to 12 learn reading, writing, arithmetic, and national culture. 2. Lower Secondary Education: Grades 7 through 9, for students age 13 to 15. 3. Higher/Upper Secondary Education: Grades 10 through 12, where students age 16 to 18 choose between continuing an academic path that could lead to university or studying subjects such as applied agriculture, aeronautics, arts, commerce, and teacher training. According to the United Nations Educational, Scientific and Cultural Organization, as of 2013 there were 14,600 general education schools in Afghanistan. Approximately 41 percent (6,056) were primary schools only, while 27 percent (3,918) were lower secondary schools that included all primary grades, and another 32 percent (4,625) were upper secondary schools containing all three levels.12 In May 2016, the MOE reported that Afghanistan had 15,249 general education (government) schools with 184,024 teachers and almost 8.7 million students enrolled. In July 2015, President Ashraf Ghani ordered an investigation into allegations of corruption within the MOE.13 By August, provincial teams from the Afghan government were assigned to collect more

10 The survey had four sections: external observations, internal observations, staff interviews, and community interviews. Prior to completing on-site visitation, staff were trained on how to locate and access a school, perform internal and external observations, fill questionnaires properly, and take GPS-embedded and date/time-stamped photographs. One official from each school was asked to complete the survey/questionnaire and provide responses for his or her school to provide insights related to personnel enrollment and attendance, school functionality, and other relevant information. An inspection supervisor attended several site inspections to ensure that staff collected survey information in a standardized manner, accurately accounted for all questions on the questionnaire, and properly photographed facilities. 11 SIGAR, Primary and Secondary Education in Afghanistan, SIGAR 16-32-AR, April 26, 2016, pg. 3. 12 United Nations Educational, Scientific and Cultural Organization, “Education for All 2015 National Review Report: Afghanistan,” June 2015, p. 28. 13 Ariana TV, “Afghan President Assigns Delegation to Probe Corruption Allegation in Ministry,” July 14, 2015; TOLOnews, “Task Team Uncovers Hundreds of Ghost Schools,” January 2, 2016.

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reliable figures for 6,000 schools across all 34 provinces, with field work conducted in September 2015.14 In January 2016, Afghan media sources began publishing results of the investigation, which included allegations of embezzlement; inconsistent and underreporting of nonexistent “ghost” schools; thousands of “ghost” teachers on official rolls; “ghost” training seminars; and discrepancies in student enrollment and attendance records.15 On January 4, 2016, USAID officials attended a meeting with President Ghani to discuss the investigation’s preliminary findings.16 USAID said President Ghani outlined specific organizational and management reforms, such as introducing a national electronic payment system for teacher salaries and a national public corruption council to minimize fraud and corruption. Similarly, according to the Department of State, Minister of Education Asadullah Hanif Balkhi reemphasized his commitment to increase transparency within the MOE, root out corruption, and curtail the misuse of funds.

CONDITIONS REPORTED AND OBSERVED AT 7 SCHOOLS IN KUNAR PROVINCE

Our site inspection teams interviewed school staff and community members, inspected school grounds and buildings, and obtained photographic evidence at 7 CERP-funded schools in four districts in Kunar province. Five of the 7 schools visited were located in one of two districts— Asadabad (3 schools) and Chawkai (or Tsowkey, 2 schools). The other two were located in Narang, and Marawara (Marawarah). All 7 schools we visited in Kunar were open or in use. Figure 1 shows the general location of the schools for which we completed site visits in Kunar.

14 USAID, response to SIGAR vetting, October 12, 2015; USAID, Office of Education, response to SIGAR data call, September 23, 2015. 15 TOLOnews, “Task Team Uncovers Hundreds of Ghost Schools,” January 2, 2016. 16 The final investigation report had not yet been made public.

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Figure 1 - Location and Operational Status of Schools Surveyed in Kunar Province

Source: Army Geospatial Center data

Community members we interviewed near all of the 7 schools believed that the schools benefited the local community. For example, one respondent in a community near a boy’s school in Asadabad district reported that the school in his province has access to technologies, such as a laboratory, library, and computer lab, that other schools do not, and that many students who attend go on to college. Another respondent in a community near a girl’s school in Chawkai district reported that the school provided a facility for girls where there previously was not one, and that the building will be able to accommodate the female students within the district for the next several years.

Number of Students Observed During Site Visits at 7 Schools in Kunar

The 7 schools we visited in Kunar were generally well attended by students. School staff reported that the schools typically operated one shift per school day. Of the schools we visited, four operated one shift per day, while two had two shifts and one had three shifts. We interviewed school staff and asked questions about total enrollment and estimated daily number of absent students. Survey responses were collected and analyzed for irregularities between what school officials reported and observations made during site visits. School officials reported a median daily enrollment of 1,059 students at the time of our site inspections.

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During each site visit we also observed and tallied the number of students present at each of the 7 schools in Kunar province. On the day we were there, we observed a median of 900 students at the 7 schools, which represents approximately 86 percent of all students reportedly enrolled by school staff. Some schools conduct more than one shift, and therefore the total number of students enrolled in a school would not be expected to be present during a single visit at a specific shift time. Table 1 provides a list of reported and observed numbers of students at each inspected school.

Table 1 - Reported and Observed Student Data at 7 Schools in Kunar Province during One Shift on a Normal School Day

School District School School Observed Reported Approximate Observed Reported No. Type Level Operational (Students) 1 Number Student Number Status Observed2 Percentage3 of Daily (Students) Shifts

Open or SKU-3 Narang Boys H 1,402 1,300 92.72% 1 In Use Co- Open or SKU-6 Marawara L 600 530 88.33% 1 Education In Use Open or SKU-4 Asadabad Boys H/L 819 700 85.47% 2 In Use Open or SKU-2 Asadabad Boys H 1,059 900 84.99% 1 In Use Open or SKU-7 Chawkai Girls L 243 200 82.30% 1 In Use Open or SKU-1 Chawkai Girls H 1,981 1,600 80.77% 2 In Use Open or SKU-5 Asadabad Boys H 2,244 1,200 53.48% 3 In Use Median 1,059 900 85.99% 1 Key: H – higher secondary school and L – lower secondary school Source: SIGAR analysis. Notes: Observed students may reflect double counting of students observed both inside and outside of schools. 1 This number reflects the number of students reportedly enrolled in the school and does not reflect absentees. 2 Observed students reflect the number of students counted on school grounds at the time of site inspection; in cases where we were unable to conduct a precise count without interrupting school operations, we approximated the number of students observed at the facility. 3 Represents the mean percentage of students observed on site relative to the total number of students reported to be enrolled by school officials during the survey interview.

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During our visits, we observed approximately more than 80 percent of reported student enrollment at six schools. Photo 1 –Students Observed at SKU-2 in At one school that operated three shifts, we observed Asadabad District at the Time of Our Visit approximately more than 50 percent of reported student enrollment.17 This is impressive given the challenges with access to education and educational facilities that some students face in different provinces in Afghanistan. For example, a February 27, 2017, report from the Institute of War and Peace Reporting highlighted insecurity, a deficit of school buildings, a lack of teachers, and the absence of cooperation and support from the local community as reasons many schools in Kandahar province closed, leaving tens of thousands of children without access to education.18 Photo 1 shows an example of a well-attended boys’ school in Asadabad district. The attendance rate at the school during our site Source: SIGAR, April 3, 2016 visit was 85 percent.

Number of Teachers Observed During Site Visits at 7 Schools in Kunar School officials reported that there was a median of 28 teachers assigned to each school, working one shift of approximately 5 hours each per school day. During our site visits, we found a median of 25 teachers on school grounds, roughly equivalent to 89 percent of the number of teachers reportedly assigned to a school. Some schools conduct more than one shift, and therefore the total number of teachers may not be expected to be present during a single visit at a specific time. Table 2 provides a list of reported and observed numbers of teachers at each inspected school.

Table 2 - Reported and Observed Teacher Data at 7 Schools in Kunar Province during One Shift on a Normal School Day

School District School School Observed Reported1 Approximate Observed Reported No. Type Level Operational (Teachers) Number Teacher Number of Status Observed2 Percentage3 Daily Shifts (Teachers)

Open or SKU-7 Chawkai Girls L 10 11 110.00% 1 In Use Co- Open or SKU-6 Marawara L 8 8 100.00% 1 Education In Use Open or SKU-2 Asadabad Boys H 20 18 90.00% 1 In Use Open or SKU-3 Narang Boys H 28 25 89.29% 1 In Use Open or SKU-1 Chawkai Girls H 30 26 86.67% 2 In Use Open or SKU-4 Asadabad Boys H/L 29 25 86.21% 2 In Use

17 Observed students reflect the number of students counted on school grounds at the time of the site inspection. This was number approximated, and may include double counting. 18 The Institute for War and Peace Reporting, “School Closures Hit Afghan Province.” February 27, 2017.

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Open or SKU-5 Asadabad Boys H 53 35 66.04% 3 In Use Median 28 25 89.29% 1 Key: H – higher secondary school and L – lower secondary school Source: SIGAR analysis Notes:

Observed teachers may reflect double counting of students observed both inside and outside of schools. 1 Represents the number of teachers reported employed at a school by a staff member during the survey interview and does not account for absentees. Our review does not provide additional context into the reasons for a teacher’s absence or whether the absence was sanctioned by school officials. 2 Observed teachers reflect the sum of teachers on school grounds. 3 Represents the percentage of teachers observed on-site from the total number of teachers reported working at the school by school officials during the survey interview. As noted above, the observed percentage may be higher than 100 percent because of double counting.

SEVERAL SCHOOLS IN KUNAR PROVINCE DO NOT HAVE ACCESS TO A RELIABLE SOURCE OF ELECTRICITY AND FUNCTIONAL PLUMBING, BUT MOST APPEARED STRUCTURALLY SOUND

In addition to documenting the number of teachers and students reported and observed, we examined the basic physical condition of the 7 schools we visited in Kunar province. We found most schools had access to electricity, but officials reported that it was often unreliable and insufficient to meet school needs. We also found that most of the schools had access to drinking water, but some faced unsanitary conditions related to toilets and plumbing. Additionally, we found that the overall structural quality of four schools was sound and appeared safe for educational use. However, we have concerns about the structural integrity of three schools due to the high rate of earthquakes in the area.

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More than Half of Inspected Schools Had Access to a Power Source, but Electricity Was Unreliable During our site visits, we observed whether the schools had electricity, documented the types of Photo 2 – Solar Panel Frame with Missing power sources available, and interviewed school Solar Panels at SKU-6 in Marawara District staff to inquire about school operations. We found that five of the 7 schools had electricity to power their classrooms or offices, and 2 did not. Three of the seven schools that had access used solar and wind energy sources to generate electricity, one school had access to power through generators, and one school had access to power through the use of the local power grid. However, only one school (that used solar power) reported that their school’s power source was reliable. There are several reasons why a school may lack electricity in its classroom despite having access to a power

source. For example, in some instances the school’s connection to the electrical grid is unstable or its Source: SIGAR, March 31, 2016 solar panels are damaged or stolen. School officials from four schools we visited reported that their schools’ solar panels had either been damaged or stolen. Photo 2 shows missing solar panel frames on a roof in at school in Marawara. According to school officials, the solar panels were stolen by insurgents.

Some common issues we found with electrical power supply at schools, include lack of maintenance of core power systems, such as generators and solar power systems, and exposed wires and damaged electrical fixtures. Photo 3 shows exposed wires from an electrical socket in a school in Asadabad. Photo 4 shows a damaged electrical switch at another school in Asadabad.

Photo 3 – Exposed Wires from an Electrical Photo 4 – Damaged Electrical Switch at SKU-2 Socket at SKU-4 in Asadabad District in Asadabad District

Source: SIGAR, March 30, 2016 Source: SIGAR, April 3, 2016

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We found three schools that had educational equipment requiring electricity, such as Photo 5 – New and Unused Computers at SKU-5 computers and lab equipment that could not be in Asadabad District used due to a lack of electricity. Photo 5 shows new computers sitting unused in a school in Asadabad.19 School officials reported that while the school has access to the local power grid, electricity is unreliable because of the relatively heavy and competing demand for power in the area.

Source: SIGAR, April 4, 2016

Most Schools in Kunar Have Access to Drinking Water, but Some Face Sanitation and Health Issues We visited six schools that had access to clean drinking water. Of these six schools, we found that five had Photo 6 - Broken Well Pump at SKU-6 in designated handwashing stations, three of which were Marawara District not maintained. School officials at three of the seven schools reported that their school had broken well pumps for dispensing water. One school lacked water access altogether. Photo 6 shows a broken well pump at a school in Marawara. All of 7 schools we visited had access to plumbing for toilets, but we found five schools where toilets were poorly maintained. At one school, site inspectors found that the toilets were not properly covered which reportedly caused sewage leakage into the surrounding area. A school official at another school reported Source: SIGAR, March 31, 2016 concerns about unsanitary conditions and potential health problems for students at his school. The official told us that the septic tank for the toilets had not been insulated, and he is concerned that waste water may filter into the clean water supply. Photo 7 shows an uninsulated toilet pit at a school in Narang. Photo 8 shows a clean and usable toilet pit at a school in Marawara.

19 We did not determine whether the computers were provided by CERP funding. According to DOD officials, the statement of work for the project did not include the purchase of computers.

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Photo 7 – Uninsulated Toilet Pit in SKU-3 in Photo 8 – Usable Toilet Pit in SKU-6 in Mararwara Narang District District

Source: SIGAR, April 3, 2016 Source: SIGAR, March 31, 2016

Kunar Schools Appeared to have Limited Structural Deficiencies, but May be at Risk of Future Structural Damage Due to Earthquakes We found that the overall structural quality of four schools was sound and schools appeared safe for educational use. However, we observed structural damage in three schools (SKU-3, SKU-4, SKU-7) that site inspectors identified as likely caused by earthquakes, and believe that future earthquakes may exacerbate the damage. For example, we found that one school in Chawkai did not have a properly filled earthquake joint, which was causing water to leak into the school’s interior (SKU-7). We believe that future earthquakes could cause more severe damage to the school if the earthquake joint is not fixed. The U.S. Geological Survey reports that earthquakes pose a serious hazard in Afghanistan, especially in and near the northeastern part of the country where Kunar is located.20 Missing or broken doors and windows were also very common at the schools we visited. We found that 5 of 7 schools had either missing or broken windows, and three had missing or broken doors. At two schools, school staff used plastic to provide some protection against changes in climate. Photo 9 shows a makeshift door frame at a school in Chawkai district. Photo 10 shows broken windows at another school in Asadabad district.

20 U.S. Department of the Interior, U.S. Geological Survey, “Preliminary Earthquake Hazard Map of Afghanistan,” 2007.

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Photo 9 – Makeshift External Door at SKU-7 in Photo 10 – Broken Windows at SKU-2 in Chawkai District Asadabad District

Source: SIGAR, March 29, 2016 Source: SIGAR, April 3, 2016

We visited two schools that experienced artillery fire during school hours due to the ongoing military Photo 11 – Porous Roof at SKU-2 in activity in the area. At one school located near a Asadabad District military base, artillery fire caused damage and narrow cracks to the school building, and three students were reported to have been killed. Schools officials at another school reported that the school was hit by both a munition and insurgent fire. A community member from this school district reported that two students were injured from the reported insurgent fire. According to a 2009 by the United Nations International Children’s Emergency Fund, “explosions in or near schools buildings (including throwing of grenades, mines and rocket attacks) and direct attacks against students or education personnel are common.”21 Source: SIGAR, April 3, 2016 Precipitation is quite prevalent in Kunar province, and it rained approximately 150 days between December 2015 and December 2016.22 We found three schools that had gaping and leaking roofs that if not fixed may cause water damage to school property. Photo 11 depicts a porous roof at a school in Asadabad. We also found three schools that had mold growing on the walls and ceilings that may be caused by the damp conditions in the area. Mold may be the result of missing windows and doors or leaking roofs, which allow moisture to collect and stagnate. Mold and other airborne toxins caused by damp conditions can pose serious health hazards to students and teachers studying and working in the school. Photo 12 depicts mold we observed on a classroom ceiling at a school in Chawkai, Photo 13 depicts another classroom in the same school in which desks and walls have been damaged by wet conditions.

21 CARE, “Knowledge on Fire: Attacks on Education in Afghanistan,” 2009. 22 World Weather Online, https://www.worldweatheronline.com/asadabad-weather-averages/konar/af.aspx, accessed April 19, 2017.

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Photo 12 – Mold in a Classroom Caused by Photo 13 – Wet Conditions in a Classroom Caused Rainy Conditions at SKU-1 in Chawkai District by Rainy Conditions at SKU-1 in Chawkai District

-Source: SIGAR, April 3, 2016 Source: SIGAR, April 3, 2016

ACCESS TO CLASSROOMS AND FURNITURE IS LIMITED AND OVERCROWDING IS AN ISSUE

All of the 7 schools we visited included observation of a class in session. We observed students in six schools sitting on the floor during their class sessions. This may be because desks and chairs at the school are broken or otherwise unusable. However, schools officials did not comment as to why students were sitting on the floor. We observed broken or otherwise unusable desks and chairs in five schools. Photo 14 shows students sitting on the floor at a school in Chawkai. Photo 15 shows a pile of broken desks and chairs in a different room at the same school.

Photo 14 – Students Sitting on the Floor at Photo 15 – Broken Desks and Chairs at SKU-7 in SKU-7 in Chawkai District Chawkai District

Source: SIGAR, March 29, 2016 Source: SIGAR, March 29, 2016

School officials in 6 of the 7 schools reported not having enough books for the students in the school. Only one school official reported that the books available on site were sufficient for the

SIGAR-17-53-SP – Review: Schools in Kunar Province Page 16 number of students in the school. However, we observed books not in use in four schools. We do not know the reason the books were not being used by the students, and it may be that the school received more books than it could have used or the books provided were not for a grade or reading level being taught at the school. According to the United Nations Educational, Scientific and Cultural Organization (UNESCO) 2015 Afghanistan National Education Report for All, “access to textbooks is an important factor in the improvement of education quality.”23 UNESCO reported that “the MOE has paid special attention to the printing and distribution of textbooks to students,” and “Afghanistan has made significant progress in terms of textbook provision over the years [since 2003].” Photo 16 shows an example of books stored and not in use on site at a school in Marawara. Photo 17 shows unused books in a school in Asadabad.

Photo 16 – Books Unused at School SKU-6 in Photo 17 – Books Unused at School SKU-2 in Marawara District Asadabad District

Source: SIGAR, March 31, 2016 Source: SIGAR, April 3, 2016

Officials at 2 of the 7 schools told site inspectors that their schools were overcrowded. At both of these schools, we observed students receiving instruction in locations outside of regular schools buildings, either on the school grounds or in temporary shelters such as canvas tents due to overcrowding. For example, in one school in Asadabad, site inspectors found students studying outside of the main building because there were no classrooms available for use. In a girls’ school in Chawkai, we found students studying under tents with no mat, chairs, or desks on floors that were wet from continuous rains. However, what may seem like overcrowding could actually be the result of poor planning and resource usage by school officials. Photo 18 shows students attending school outside of a normal classroom in Asadabad. Photo 19 shows tents used as classroom space for students in a school in Chawkai.

23 UNESCO, “Education for All 2015 National Review: Afghanistan,” 2015.

SIGAR-17-53-SP – Review: Schools in Kunar Province Page 17 Photo 18 – Students Taught Outside in SKU-2 in Asadabad District

Source: SIGAR, April 3, 2016

Photo 19– Tents Used as Classrooms at SKU-1 in Chawkai District Due to Overcrowding at the School

Source: SIGAR, April 3, 2016

According to a 2013 UNESCO report, about half the schools in Afghanistan do not have usable buildings, and overcrowded classrooms often pose challenges for students and teachers to adapt classroom arrangements.24 While progress has been made in Afghanistan in terms of provision of school buildings, overcrowding continues to remain an issue.

CONCLUSION

Between March and April 2016, we visited 7 schools, located in four districts in Kunar province that were constructed or rehabilitated by DOD using CERP funds. We were at each site for approximately 1–2 hours. During our observations from these visits, we found that several schools in Kunar do not have access to reliable electricity, have poor sanitation conditions, and are at risk for structural damage due to the prevalence of earthquakes in the area. DOD funded the 7 schools in our review between 2007 and 2009. Our review provides insight into the status and condition of these 7 schools, estimated to cost taxpayers $1.4 million, constructed or rehabilitated using CERP funds that we inspected in Kunar province. We encourage DOD to share the results of this review with the Afghan government, particularly as a means to notify the MOE about structural and other deficiencies highlighted in this report that may impact the delivery of education services and the safety of teachers and students.

24 Id.

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APPENDIX I - SCOPE AND METHODOLOGY

As part of our ongoing examination of the Afghan education sector, we initiated this special project to determine whether schools receiving funds from the Department of Defense’s (DOD) Commander’s Emergency Response Program (CERP) in Kunar province were open and operational, and to assess their current condition. This review is not an assessment of CERP projects, but rather a review of the operational and structural status of schools in Afghanistan that were built using CERP funds. To accomplish our objectives, we identified CERP-funded schools using a SIGAR-consolidated financial dataset on CERP programs that identifies obligation and disbursement data for all CERP projects through the second quarter of fiscal year 2015. SIGAR consolidated this data from the Assistant Secretary of the Army, Financial Management and Comptroller’s fourth quarter reports to Congress dating back to fiscal year 2004.25 Using this data, we identified 68 CERP-funded projects to construct, rehabilitate, or assist schools in Afghanistan. The projects we selected were coded as “completed” or “complete,” “transferred” or “active.” We determined that the 68 projects were dispersed across 20 provinces in Afghanistan, and 5 projects were specific to Kunar province. In conjunction with our Afghan civil society partners, we chose to inspect CERP projects in Kunar province because these projects funded multiple schools and site inspectors deemed schools in Kunar to be safe and accessible for inspection. In order gain access to schools, SIGAR formally requested authorization letters from the MOE to allow access for our site inspectors. MOE provided the authorization letters, and the MOE sent a letter the provincial educational directorate in Kunar requiring that school districts cooperate with SIGAR inspectors on the ground. The letters provided access for the inspection of schools and educational facilities. In total, staff visited 11 schools and completed surveys for each of the MOE- operated schools.26 To ensure the schools we visited were CERP-funded schools, we worked closely with DOD CERP subject matter experts to cross-reference school location data and photographs of school signage taken by site inspectors with internal DOD databases. Based on this review, we were able to verify that 7 schools received CERP funding for the construction of schools. For purposes of this report, we conducted our analysis only on those 7 schools that we were able to verify received CERP funding for school construction. Site inspectors performed limited inspections of the 7 schools in Kunar province between March 28 and April 4, 2016. We inspected schools located in four districts—Asadabad, Chawkai, Marawara, and Narang. We inspected three schools in Asadabad, two schools in Chawkai, one school in Marawara, and one school in Narang. For these limited inspections, we carried out physical site visits of 1–2 hours at each facility. Standardized survey questionnaires were used, and we utilized Global Positioning System (GPS)-enabled cameras to secure embedded geocoordinates and date-/time- stamped photographs. The standardized survey conducted during the site visits was comprised of four sections: observations from outside the school, observations from inside the school, staff interviews, and community interviews. Site visits were relied on as a means of confirming the accuracy of geospatial coordinates, the extent to which the schools were in use, as well as potential structural, operational, and maintenance problems at each facility. All records and documentation were analyzed by the SIGAR Office of Special Projects. Scanned copies of the surveys completed in the field, were reviewed for irregularities during data normalization.

25 In conjunction with DOD, SIGAR compiled a consolidated dataset on CERP programs that identifies obligation and disbursement data for all CERP projects through the second quarter of fiscal year 2015. 26 One school we visited in Asadabad consisted of both a primary and secondary school. Since both schools shared the same educational facilities, we counted these schools as one for the purposes of our review.

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To determine the amount of CERP funds spent on the 7 schools we visited in Kunar province we matched schools to CERP projects with assistance from DOD subject matter experts by reviewing school location and contract data in CIDNE. Through these matches we identified four CERP projects that funded the construction of 9 schools in Kunar. We cross-referenced the CERP projects we identified with obligation and disbursement data made available to SIGAR by DOD.27 Two of the four CERP projects we identified each funded the construction or rehabilitation of one school in Kunar province inspected by SIGAR for this review. The other two projects funded multiple schools that were not all inspected by SIGAR. To approximate the cost of each school visited in these two projects, DOD subject matter experts suggested we average the total disbursed amount of each project by the total number of schools visited by SIGAR under each project to come up with an average cost per school. Both DOD and SIGAR recognize that the actual amount spent per school may differ from the average amount calculated depending on the type and amount of work required to build each school. The total estimated amount of CERP funds spent on the 7 schools we visited in Kunar province was $1.4 million. See table 3.

Table 3 – Total Estimated Amount of CERP Funds Spent on the 7 Schools Inspected by SIGAR CERP Project ID No. Number of Year Disbursed Costs Per Number of Total Adjusted SIGAR CERP Schools Project Project Schools Cost Per School School No. Funded Funded Visited by Per Project SIGAR CERPJAF8C00117 1 2008 $199,999.99 1 $199,999.99 SKU-1

CERP20090329112739 5 2009 $1,043,832.40 $208,766.48 SKU-2 $208,766.48 SKU-3 4 $208,766.48 SKU-4 $208,766.48 SKU-5 CERP20090330161536 2 2009 $488,196.10 1 $244,098.05 SKU-6 CERJAF8B00040 1 2007 $126,705.98 1 $126,705.98 SKU-7

Total Disbursed Cost 9 $1,858,734.47 7 $1,405,869.05

Source: SIGAR analysis of CERP disbursement data. SIGAR conducts special projects under authority of Public Law 110-181 and the Inspector General Act of 1978, as amended, and in accordance with the principles of integrity, objectivity, and independence in the Council of Inspectors General on Integrity and Efficiency (CIGIE) Quality Standards for Federal Offices of Inspector General, and the policies and procedures and described herein, SIGAR’s Special Projects Policy and Procedures Manual. The CIGIE Quality Standards for Federal Offices of Inspector General were established to help Offices of Inspectors General fulfill their oversight roles and comply with statutory requirements and professional standards. The CIGIE quality standards incorporate by reference (section III) the existing professional standards for audit, investigation, and inspection and evaluation efforts. CIGIE, however, has not established specific professional standards for conducting special projects.

27 SIGAR compiled a consolidated dataset on CERP programs that identifies obligation and disbursement data for all CERP projects through the second quarter of fiscal year 2015.To compile the most complete set of CERP data possible, SIGAR consolidated data from the Assistant Secretary of the Army, Financial Management and Comptroller’s annual fourth quarter reports to Congress dating back to fiscal year 2004. Because the quarterly reports contained obligation and disbursement data as of the point in time that DOD submitted the reports to Congress, SIGAR merged the Army-provided CERP data with updated obligation and disbursement data from the Defense Finance and Accounting Service into a single, aggregated dataset that joins project information with the most accurate and final expenditure data available for all CERP projects.

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APPENDIX II - ACKNOWLEDGEMENTS

Sara Margraf, Senior Analyst Kyra Murphy, Analyst Omar Sharif, Intern

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This project was conducted under project code SP-144.

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The mission of the Special Inspector General for Afghanistan SIGAR’s Mission Reconstruction (SIGAR) is to enhance oversight of programs for the reconstruction of Afghanistan by conducting independent and objective audits, inspections, and investigations on the use of taxpayer dollars and related funds. SIGAR works to provide accurate and balanced information, evaluations, analysis, and recommendations to help the U.S. Congress, U.S. agencies, and other decision-makers to make informed oversight, policy, and funding decisions to: • improve effectiveness of the overall reconstruction strategy and its component programs; • improve management and accountability over funds administered by U.S. and Afghan agencies and their contractors; • improve contracting and contract management processes; • prevent fraud, waste, and abuse; and • advance U.S. interests in reconstructing Afghanistan. Obtaining Copies of SIGAR To obtain copies of SIGAR documents at no cost, go to SIGAR’s Web Reports and Testimonies site (www.sigar.mil). SIGAR posts all publically released reports, testimonies, and correspondence on its Web site.

To help prevent fraud, waste, and abuse by reporting allegations of To Report Fraud, Waste, fraud, waste, abuse, mismanagement, and reprisal, contact SIGAR’s and Abuse in Afghanistan hotline: Reconstruction Programs • Web: www.sigar.mil/fraud • Email: [email protected] • Phone Afghanistan: +93 (0) 700-10-7300 • Phone DSN Afghanistan: 318-237-3912 ext. 7303 • Phone International: +1-866-329-8893 • Phone DSN International: 312-664-0378 • U.S. fax: +1-703-601-4065

Public Affairs Officer Public Affairs • Phone: 703-545-5974 • Email: [email protected] • Mail: SIGAR Public Affairs 2530 Crystal Drive Arlington, VA 22202