Asia Pacific Regional EGM - Country Paper: Afghanistan

Materials:

Status: draft

DISABILITY POLICY DEVELOPMENT IN AFGHANISTAN: TOWARDS BARRIER FREE SOCIETY.

by
A Wardak, MI Faiz, and M Turmusani.
Contact details and for comments: Turmusani@hotmail.com UNOPS/CDAP, Afghanistan.

INTRODUCTION

In the past traditional approaches to policy planning regarding disabled people was top down. This contributed to the exclusion of disabled people from mainstream society by limiting their views in debates pertaining their lives and thus hindering their voices from being heard. These conventional approaches often portrayed disabled people as dependent, demanding, and as unable to contribute to the life of society. In so doing, they served reflected a general public perception towards people with impairments as a burden on society’s resources and that an investment in their favour is not a viable option economically. This notion has been greatly reinforced by the widespread values of capitalism and the free market economy, but it also has roots which go back as early as the industrial revolution. Because impaired people were not able to cope with the new factory system (i.e. inaccessible workplace) they have been thus segregated from the labour market and been excluded from the life of community more generally (Oliver and Barnes, 1998). Their equal rights for inclusive and accessible society were never taken on board in public agendas and subsequent provisions.

While the above situation has been typical in the development of disability policy and provisions in many Western societies, it is also evident in other developing countries and countries in transition as in Afghanistan. In the quest for national policy for Afghanistan including those on disability, United Nations Comprehensive Disabled Afghan Programme under UNOPS, has entrusted the responsibility for formulating disability policy known as the Green Paper to a Task Force Group which in turn has set up four disability working groups in the areas of education, employment, rehabilitation and research.

This paper reports the progress that is taking place while developing disability policy in the context of Afghanistan and highlights a number of challenges and limitations of the participatory approach to disability policy planning. Yet, it advocates same participatory approach as potential strategy for the inclusion of disabled people into society.

DISABILITY IN AFGHANISTAN

In many conflict zone areas, disability is understood as a war issue[1] due to an overwhelming majority of disabled war veterans and land mine survivors (Boyce, and Paterson, 2002). The political implication of this understanding leads to a perception of disability as functional limitation of the individual instead of being a social barrier. In Afghanistan, this can be seen in the way in which disability sector has been supported and developed in recent years. Because functional limitation has been considered as most restricting to individuals, attention by natioanl and international initiatives has been directed towards those with physical mobility and regard them as disabled. Efforts have largely focused on how to adapt disabled person to the environment instead of making necessary societal changes. Invisible impairments are often neglected and receive less attention by planners and policy makers although as restricting to individuals as other kind of impairments.

While this understanding can be advantagous to the development of a barrier free agenda for those with mobility problems, the accessibility needs of other impaired people might be seriously hampered. In reality however, the accessibility situation for all disabled people in Afghanistan has not been met despite various initiatives that have been put into place. Disabled people as a result had limited access to socetial provisions and their needs remained largely unmet.

There is an obvious need for improving accessibility standards in Afghanistan including that relating to attitudes. However consultations with disabled people including those with physical impairments, showed that their priorities in the different direction looking towards services in education, employment and rehabilitation. This if anything, shows the very poor services available to them and their desperate quest to get basic needs met.

Curerent support to the disability sector in Afghanistan focuses largely on physical disability. Little support is directed towards blind and deaf people. There is nearly no specialist support available for those with mental and psychological impairments or those with multiple impairments. Despite the improvement in the scope and target coverage of disability programmes, disabled women and children continue to be neglected especially in remote areas.

Most of disability support is focused on assistance in service delivery and there is little for capacity building or policy development. Recent international support to the disability sector however, has included coordination between partners, as well as policy development and limited disability reseach. This paper focuses on the latter and describes how the participatory process of developing disability policy started and its progress as of today.

TOWARDS PARTICIPATORY POLICY PLANNING IN AFGHANSITAN

Afghanistan is now moving towards a stage of reconstruction and development, which by definition means building local and national capabilities and targeting all sections of society including minority groups such as people with disabilities. While the international community (UN’s Comprehensive Disabled Afghan Programme – CDAP and other disability INGO’s) has focused on the physical rehabilitation of disabled people over the past few years, there is an emerging need for increasing investment in the area of socio-economic rehabilitation and more recently in the political rehabilitation. However to keep the balance between the provisions of rehabilitation services to disabled people including physical rehabilitation and the development of national policy on disability (i.e. political rehab) all the stakeholders have to work collaboratively in a participatory manner. Such policy should be based on a situational analysis and based on the real needs of disabled people on the ground (Turmusani, et al 2002).

This process of participatory situational analysis is central to developing disability character and perspective in Afghanistan, which is based on human rights ideals. The process itself is as important as the outcomes and it revolves around service users in the first place but also utilizes all stakeholders’ capabilities and strength inviting their active contribution in various stages of the process.

This make up has been evident in the current work on developing disability policy in Afghanistan. In early 2003, UNOPS/CDAP facilitated the setting up of a Disability Task force under National Disability Commission (NDC) with main task to develop and write policy green paper document by end of July 2003. Task Force has set up in turn four working groups to carry out specialist research and policy writing. This includes groups on education, rehabilitation, employment and research. These working groups comprise all stakeholders including various disabled people (deaf and blind people as well as those with physical disability). It is hoped that in the future, there will be some people with mental disabilities represented on these groups too. Working groups also comprise of representatives from disability NGO’s both local and international, relevant government departments and UN agencies. Working groups had their meetings independently in consultation with the Ministry of Martyrs and Disabled and CDAP. A Task Force meeting for information sharing is planned towards end of May.

The task force has set up mechanisms for ensuring the representation and participation of disabled people on the Task Force so that their views are clearly heard. For example, disabled people organizations have become permanent member of all working groups. Various working groups have carried out a research on disabled people’s situation. A number of workshops and consultation meetings have been organized to get general consensus on the needs of disabled people. Finally, specialist research was conducted on the capacity of disabled people groups in order to better mobilize their resources and develop their organizations. Outputs of this research are being also used for policy planning.

It should be noted however that some groups are more active than others. For example, the working group on rehabilitation led by Handicap International has already got specialist support from overseas to carry out disability/rehab research for policy purposes. Italian Cooperation on the other hand leads working group on education and they have conducted sample research on education in Kabul. Working groups on employment have just elected their chair and there seems to be no international support for this important group although there is an Australian volunteer assisting them in terms of administration and facilitation of meetings. ILO was invited to join this group. Perhaps they will increase their investment later on. The working group on research is led by CDAP, as there is no specialist research expertise in Afghanistan. CDAP closely follows up this group and coordinators of previous working groups are members in this group. This working group provides technical support to other working groups on how to plan policy based on real needs and how to use this in writing disability policy document. Advice on disability research is main task of this group.

It is expected that the Green Paper on Disability comprising of all documents produced by various working groups should be completed by end of July. This will be submitted for government endorsement in a national conference on disability and development. After national discussion by all stakeholders, it is hoped that the green paper will be integrated into the national constitution and become recognized policy. This will then be translated into specific guidelines and mechanisms be designed to implement these policies as part of national development strategy. Since disability is indeed a cross cutting issue, this strategy has to be part of the national development framework with its 12 programmes including especially budget allocation.

In conclusion, disability work remains scattered and ineffective as every partner has their own different and sometimes contradictory approach to disability in Afghanistan (service delivery vs capacity building), method of work and political priorities. This is not helped by the lack of comprehensive disability policy in Afghanistan starting from definitions and ending up with inclusion and beyond. It becomes essential therefore to involve partners together in dialogue and consultation process in order to reach one policy position and one plan of action regarding disability in Afghanistan, both at policy and provision. The work on the development of a disability policy and strategy are amongst the most notable ways to resolve the shortfalls identified in disability sector in Afghanistan.

PARTICIPANTS INSIGHTS ON BARRIER FREE SOCIETY

The Task Force on Disability through various working groups has investigated the needs of disabled people with emphasis on identifying problems and barriers confronting everyday life of disabled people and how best can be overcome. In disability policy research the main target population is disabled people and the main emphasis is on their position in society compared to the general public. By exploring the situation of disabled people who receive services through different agencies, it is hoped to reach those people who are identified as disabled but receive no services yet in the local community as well as those who are not reached at all including severe cases and women with disabilities.

Throughout the meetings and workshops, a theme has emerged showing the inadequate opportunity for disabled people to participate in the life of society due to both physical and mental barriers. This included inaccessible buildings, poor transport system and inaccessible working place. While there is a unique opportunity to develop a generally accessible environment in Afghanistan at this phase of the reconstruction process, little has been done to remove the barriers to integration of persons with disability in the legal protection institutions. Even disabled people themselves have not identified this area as priority for action.

Discussion with disabled people who took part in three task force workshops indicated that the overwhelming majority of public[2], commercial[3] and residential buildings in Afghanistan are not accessible[4]. Only few public buildings in Kabul had been equipped with ramps. There was no accessibility in terms of signs, lighting, traffic lights, curbstones, etc. Furthermore, streets are not accessible, neither sports facilities and playgrounds. Public transport including buses was not accessible too. There was no information centres exist to assist disabled people or public resting places.

When asking whether disabled people are perceived as human resources, officials plainly acknowledged the participation of disabled people in civic life only in the form of social activities. The ability of disabled people to take part in public life on equal footings with others including engaging in employment and politics was not a common perception, which officials held towards disabled people.

It is estimated that 2%-4% of Afghanistans population have impairments, which makes 700.000 – 800.000 disabled people (UNOPS, 2002). While no reliable statistics exist up to date, preliminary data from national survey conducted by ministry of martyrs and disabled shows that there is approximately over one million disabled people in Afghanistan (data analysis is in progress). Out of this figure, only small proportion of disabled people has been receiving services of any kind. For example, CDAP, the largest disability service provider in Afghanistan provides socio-economic and physical rehabilitation services to less than 10.000 disabled people.

The number of disabled students at regular schools is not known but it is believed that they are very few in comparison to those who are needing the service. On the other hand, there seems to be fair coverage of orthopedic and physiotherapy services throughout the country.

The proportion of 2-4% disabled children in Afghanistan varied between rural and urban areas and between capital and other cities, but all have in common that such proportion is very small, given the large number of war veterans and landmines victims. Variation in numbers of disabled people in Afghanistan nonetheless, was largely due to political reasons. For example, there are more disabled people identified and registered in the southern region of Kandahar than in other places due to political instability in this area with Taliban active presence.

MMD sources however, show that there is over 300.000 war victims registered for financial support from the ministry and those come from all regions including Kandahar.

CHALLENGES TO PARTICIPATORY DISABILITY POLICY

A fundamental principle among disability organizations around the world is the right to self-representation (Despouy, 1993; Kasnitz, 2001). People with disabilities are best equipped to change perceptions and attitudes towards disability, and should therefore play a central role in the development of strategies and projects through their legitimate organizations. This means that the collective determination of disabled people must be used to inform the strategies of any government including those concerning accesibility.

United Nations Standard Rules for the Equalization of opportunities for Persons with Disabilities and World Programme of Action concerning Disabled Persons sets disability firmly within the framework of Human Rights. They express the commitment of the international community to improve the lives of disabled people through their rehabilitation, education, employment, and integration into economic and social life. In that way the Rules become the main instrument guiding public policy in the direction of ensuring the human rights of disabled people.

Below are some observations of the limitations to using participatory policy research on disability in building accessible society in Afghanistan as noted through the process:

Low priority of disability issues on the agenda due to both low preception of disabled people and high cost involved in making adaptation to built environment.

Costs are often cited as the reason for failure to provide proper regulations or legislation on disability especially when accessible environment is addressed. However, when i.e. accessibility is incorporated in the original design, the additional cost does not generally exceed more than 0,2 - 0,3 % of the overall cost development.

Existing resources are controlled by INGO’s who are dominated by medical views to disability with professionals in control. This affects any drafting of disability policy.

The lack of a clear policy on disability at Afghanistan wide level meant a low priority of disability issues on public agenda. Supporters of disability sector in Afghanistan (partners) are so diverse and different in their focus, method of work and political priority. Setting a common framework of action for policy on disability and rehabilitation can be particularly relevant in this context. Furthermore, encouraging various methods of debate concerning the move towards actual empowerment and control of disabled people over disability issues at all levels might be one way to bridge the gap between partners and make them more accepting to such emancipatory approach.

Unfamiliarity of research practices as bases for policy planning. There is pressing need for developing action research agenda or what can be regarded as “disability and rehabilitation research" where planning is based on real identified needs, carried together with target population, and outcomes are used for building projects and policies including those of organisation.

Unfamilaiarity with concept of participation due to historical and cultural factors. Political factors are also obvious in level of participation of disbaled people and this can be seen in the exclusion of minority groups in current debates and politics.

On-going emergencies practices by UNAMA and many INGO’s

EXTRACTS FROM DRAFT GREEN PAPER ON DISABILITY IN AFGHANISTAN

Objectives of the paper are to reach:

Society for all where opportunities are made to facilitate equal access of disabled people to societal provisions such as education, rehabilitation and employment at all levels in accordance with human rights principles.
Inclusive practices throughout societal provisions and especially regarding general public attitudes.
Capacity building for all stakeholders, both institutional and human resources through in-service and pre-service training, etc.
Appropriate provisions to meeting various needs.

Policy recommendations to achieve above objectives might includes action in key areas such as:

To develop a clear policy that includes all stakeholders and which is understood and accepted at all levels in the community.
To develop institutional structures, such as effective collaboration mechanisms between the service departments, the municipality, private sector and disabled people organizations.
To raise public awareness of the needs, rights, and opportunities of persons with disabilities.

The disability sector in Afghanistan has to rise if it is ever to meet the growing needs of disabled people as well as societal expectations. Given the absence of comprehensive disabled people strategy in Afghanisatn, stakeholders objectives could focus on: improving disabled peoples’ quality of life through the enhancement of life chances and life choices; promoting inclusive practices within intended rehabilitation interventions; facilitating the emancipation of disabled people in society at both policy and practice levels.

In this regard stakeholders can make inroads into a better-coordinated disability support by striving to transfer knowledge and skills to local partners including government represented by ministry of martyrs and disabled (MMD) so that it becomes a capacity building organization itself. MMD in turn would regulate disability provisions in the country and ensure the rights of disabled people being fulfilled. In this regard, it is necessary to determine MMD operation and future strategy - role and responsibility. Early assessment of needs and expectation of MMD and those of DPO’s before planning specific projects for them is therefore crucial.
Effective utilization of referral services (both existing and new) should be made possible where existing resources, skills and infrastructure can be used to maximum level. In this context, coordination mechanisms between partners can be important for better use of resources at all levels (national, regional, provincial and local level).
Facilitate the empowerment of local disability organizations – DPO’s (existing and new ones) which should eventually take major role in drawing the national policy on disability and be actively involved in planning service provision as well as taking active part in the delivery of services too. The development of disability movement in Afghanistan is dependent on such grass-roots DPO’s who should not only operate at the local level but actively engage in disability issues at all levels including national level too.
Endorsement of development approach to disability which looks at disability as human rights issue that need to be integrated into wider community development initiatives with participatory planning based on research and assessment, thus the need for research agenda on disability.
Like gender, human rights and environment, disability is also a cross cutting issue and should be regarded as such when planning and allocating budget
Equally important are the development of proper terminology on disability and the use of Politically correct langauge describing disabling conditions, human rights and gender balance. These are among various issues which are still lacking in disability debate in Afghanistan

Together, these can facilitate the aspired and ultimate goal for interventions that is inclusion of disabled people into society with equal access to services and opportunities in line with a citizenship approach to disability.

In other words, the role of UNAMA, INGO’s, and other professionals in Afghanistan can be instrumental in supporting and facilitating disabled people and other national stakeholder such as MMD coming and deciding together and not deciding on their behalf. This is in line with disability human rights ideals for self-representation and full participation as well as in line with principles of building democratic and civic society in Afghanistan.

CONCLUSION

The involvement of disabled people in the planning process of developing the Green paper in Afghanistan highlighted a number of challenges and limitations. However the process is acting as a vehicle for discussion and raising awareness towards various environmental barriers in place. This pointed to specific strategies to bring about change in the environment. Moreover, by adopting and doing disability research for the purpose of policy planning and disseminating findings the general attitudes towards disabled people’s abilities were under change. The paper concludes by emphasising the need for more participation from the part of disabled people in the debates and subsequent planning of inclusive society including involvement in designing accessible built environment and suggested strategies for creating barrier free society as part of full package of citizenship.

REFERENCES:

Afghan Constitution (1980) The Law of the Rights of the Revolutions Injured, Disabled and Dependents of Martyrs, ratified in 1982.

Boyce, W. and Paterson, J. (2002), ‘Community Based Rehabilitation for Children in Nepal’, in M. Thomas, and M.J. Thomas (eds), Selected Readings in CBR - Series 2: Disability and Rehabilitation Issues in South Asia, National Printing Press, Bangalore, pp. 27-34.

Despouy, L. (1993), Human Rights and Disabled Persons, United Nations Centre for Human Rights, Geneva.

Kasnitz, D. (2001), ‘Life Event Histories and the US Independent Living Movement’, in M. Priestley (ed.), Disability and Life Course: Global Perspectives, Cambridge University Press, Cambridge, pp. 67-78.

Oliver, M. and Barnes, C. (1998), Disabled People and Social Policy: From Exclusion to Inclusion, Longman, London.

Turmusani, M. Vreede, A. And Wirz, S. (2002), ‘Some Ethical Issues in CBR in Developing Countries’, Disability and Rehabilitation, Vol. 24(10), pp. 558-564.

UN (1994), The Standard Roles on the Equalisation of Opportunities for Persons With Disabilities, United Nations, New York.

UNOPS (2002) The Consolidated Appeal for Comprehensive Disabled Afghan Programme – internal document. United Nations Office for Project Service, Afghanistan.

WPACDP (1983), The World Programme of Action Concerning Disabled People: Rehabilitation and Employment Convention number 169, 1983, United Nations, Geneva.

Notes:

[1] For the first time in recent Afghan history, disabled people were referred to in Law of 1980 and 1987. This law confined and defined disability within the category of war related injuries and called for material provisions for them including medical, financial, and economic reintegration (Afghan Constitution: Law 1980/Article 3 and 4 and Law 1987/article 57).

[2] This includes municipal buildings, community centres, cultural centres, schools, hospitals, courts, police station, other administrative buildings of public office, health facilities, mosques, churches, and other places of worship, libraries, working places.

[3] This includes banks, movie, theatre, exhibitions halls, and shopping centres.

[4] This refers to facilities that are equipped with special ramps, signs, elevators, and other amenities to facilitate movement of disabled people around the building and adjacent area.

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	Expert Group Meeting and Seminar on an International Convention to Protect and Promote the Rights and Dignity of Persons with Disabilities Bangkok, Thailand, 2-4 June 2003