7. Análisis de métricas de similaridad
7.5. Embedding Doc2Vec
The programmes delineated above are all implemented by the Government of Khyber Pakhtunkhwa for Paki- stani citizens; most of them even require the beneficia- ries to provide proof of citizenship like the CNIC. Such programmes cannot be, therefore, legally accessed by the Afghan refugee population in Pakistan. A trilateral group – comprising the Governments of Afghanistan and Pakistan, and UNHCR – has been working since 2002 to facilitate the voluntary repatriation of Afghan refugees to their homeland.
The repatriation programme began in 2002, with the return of more than 811,000 refugees in that year.33 After that promising start, numbers began to decline, averaging just more than 200,000 per year from 2003- 08. Thereafter, as the security situation worsened in Afghanistan, numbers began to decline further, aver- aging just 52,000 per year from 2009-2012.
The programme was supposed to end in December 2012 with the return of all the Afghan refugees to their homeland. Because this did not happen, the Govern- ment of Pakistan decided, in December 2012, to extend the validity of the Proof of Registration cards carried by the Afghan refugees until 30 June 2013, by when it hoped to devise a new policy to deal with the refugee population. The policy is being developed within the framework of the Solutions Strategy for Afghan Refu- gees that has three pillars: (i) accelerated voluntary and dignified repatriation; (ii) development of host communities; and (iii) sustainable reintegration into Afghanistan.
According to UNHCR, as of January 2013, 1.13 million registered Afghan refugees live in Khyber Pakhtunkh- wa; 51% of them among host communities, while the remaining in the 69 refugee villages scattered across the province.34 Authorities unofficially concede that a
significant number of families that arrived in Pakistan more than three decades ago have acquired identity cards through fraudulent means and are now difficult to trace.
The Afghan refugees living in the designated villages have access to the following basic services provided un- der the aegis of UNHCR:
Education: After all the schools in the refugee
villages had to be shut down by March 2006 because of funding constraints, the refugee community approached the Commissionerate of Afghan Refugees (Khyber Pakhtunkhwa) to seek permission to keep running primary schools on a self-help basis. Also, 50 additional schools were opened with the assistance of the Government of Germany. Of the 437 schools that are currently operational in the refugee villages, 129 are funded by UNHCR. The vast majority of these schools are managed by the refugee community itself. In addition, NGOs like the Al-Khidmat Foundation also manage a few schools. In 2010, only 830 of the registered Afghan refugees living in Khyber Pakhtunkhwa got admission in professional or non-profes- sional colleges without any financial assistance; another 1,198 were granted the German-fund- ed, UNHCR-managed scholarships for tertiary education; and still another 357 were awarded the Islamic Development Bank scholarships to attend college. In all, 2,385 Afghan refugees went on to study in colleges in the province in that year.
Health: Primary health care facilities are avail-
able in the refugee villages. Patients in need of tertiary care are normally referred to govern- ment health facilities, where they are treated on the same basis as Pakistani citizens.
Community development units: Each refugee
village has a community development unit, set up to promote community-led initiatives.
Legal aid: The Afghan refugees are being pro-
vided legal aid services through the Society for Human Rights and Prisoner Aid (SHARP), an NGO that works in collaboration with UN- HCR. SHARP has been working since 2002 through its Advice and Legal Aid Centres in Islamabad, Rawalpindi, Mianwali, Lahore and Karachi (the last two were established in 2007). Though the NGO does not have a cen-
tre in Khyber Pakhtunkhwa, its Islamabad and Rawalpindi offices provide services to the Af- ghan refugees living in the province, and assist them in registering claims for refugee status determination. SHARP also counsels Afghan refugees who need to be educated about their rights as refugees, as well as pursues their legal appeals.
4.5.7.1 Analysis
a) Targeting efficiency: The programmes for
Afghan refugees reach out to only those who carry the valid Proof of Registration cards and thus have a legal status in Pakistan. Im- portantly, the refugees who have illegally ac- quired the Pakistani citizenship are left out. Some would argue that they can be considered Pakistani citizens for all intents and purposes, since they can now access programmes meant for Pakistanis. Without authentic documents, however, it remains unclear if they can actually do this. In the absence of a legal alternative, the programmes for refugees must target only those whose legal status as refugees is clear. Medium.
b) Extent of programme coverage: The benefits
are meant for all those currently living in the refugee villages; they comprise about half of the total population of Afghan refugees carry- ing Proof of Registration cards. Medium.
c) Degree of ease of access: All those living in the
refugee villages can access the facilities being provided there, while all those carrying valid Proof of Registration cards are eligible to apply for scholarships. While the degree of access to basic health and education facilities is high, the opportunities for higher education are limited, judging by the negligible number of Afghan refugees enrolled in institutions of higher edu- cation. Similarly, access to tertiary care servic- es may be difficult for the Afghan refugees be- cause of their low affordability. Medium.
d) Percentage of programme expenditure dedi- cated to benefits: Not enough data available to
judge.
e) Adequacy of support: Support for the Afghan
refugees has dwindled over the years and UN- HCR is finding it increasingly difficult to attract funding for them. The facilities in the refugee villages are inadequate and an increasing num-
ber of refugees are now outside the realm of as- sistance of international agencies. Low.
f) Grievance redressal: Grievance redressal
mechanisms do not exist for the Afghan refu- gees. Low.
g) Extent of self/progressive financing and sus- tainability: The programmes for Afghan refu-
gees are highly unsustainable and funding for them has been progressively cut over the years. Low.
h) Exit mechanisms: As long as people have the
refugee status, they require some sort of protec- tion and basic services. Not applicable.
i) Degree of impact on the MDGs: The pro-
grammes for Afghan refugees indirectly con- tribute to achieving MDGs 2 and 6.
j) Programme potential to be extended to the RAHA target group: The facilities in the refu-
gee villages need to be reassessed and expand- ed, and their quality improved. This is impos- sible without adequate funding. The Afghan refugees living in the RAHA target districts are likely to benefit from such assistance.
1. Pakistan Census Organisation. (1998). Pakistan Housing and
Population Census.
2. Data collected from the Commissionerate of Afghan Refugees (Khyber Pakhtunkhwa).
3. Planning Commission, Asian Development Bank and World Bank. (2010). Pakistan Floods 2010: Preliminary Damage
and Needs Assessment. Government of Pakistan.
4. Naveed, A., & Ali, N. (2012). Clustered Deprivation: District
Profile of Poverty in Pakistan. Sustainable Development Policy
Institute.
5. Planning and Development Department. (2010).
Comprehensive Development Strategy: 2010-17. Government
of Khyber Pakhtunkhwa.
6. Indicators have been taken from the Pakistan Social and Living Standards Measurement Survey (2011) unless stated otherwise. 7. Government of Khyber Pakhtunkhwa and United Nations
Children’s Fund. (2009). Multiple Indicators Cluster Survey:
2007-08.
8. Pakistan Bureau of Statistics. Pakistan Social and Living
Standards Measurement Survey: 2010-11. Government of
Pakistan.
9. Improved water sources include tap water, and motor and hand pumps.
10. Naveed, A., & Ali, N. (2012). Clustered Deprivation: District
Profile of Poverty in Pakistan. Sustainable Development Policy
Institute.
11. Ibid.
12. Ibid.
13. Planning and Development Department. (2010).
Comprehensive Development Strategy: 2010-17. Government
of Khyber Pakhtunkhwa.
future-uncertain.
15. Department of Finance. Khyber Pakhtunkhwa Budget 2012-
13. Government of Khyber Pakhtunkhwa.
16. Calculated using an estimate of 150,000 current pensioners and 50,000 additional pensioners in the next five to ten years. 17. http://dawn.com/2013/01/30/faulty-pension-system-costing-
khyber-pakhtunkhwa-dearly.
18. ‘Net pension’ is defined as pension being drawn, minus medical allowance.
19. These rates were notified in April 2011.
20. The board classifies a disability on a scale of 0-100%, depending on the extent of impairment of physical function. 21. Government of Pakistan (2010). The Gazette of Pakistan (Act
No. XXIV of 2010).
22. National Disaster Management Authority. (2007). Provincial
Disaster Risk Management Planning Guidelines.
23. Government of Khyber Pakhtunkhwa. (2012). PARRSA at a
Glance.
24. Planning Commission, Asian Development Bank and World Bank. (2009). Pakistan Floods 2010: Preliminary Damage
and Needs Assessment (Social Protection and Livelihoods Sector). Government of Pakistan.
25. This amount does not include estimates for Bajaur and Mohmand Agencies that lie in FATA.
26. Data obtained from the National Disaster Management Authority.
27. Government of Khyber Pakhtunkhwa. (2012). PARRSA at a
Glance.
28. Government of Khyber Pakhtunkhwa and Sarhad Rural Support Programme. (2011). Uplifting Lives: Bacha Khan
Poverty Alleviation Programme.
29. Data obtained from the Sarhad Rural Support Programme.
30. Department of Finance. (2013). White Paper. Government of Khyber Pakhtunkhwa.
31. The microfinance scheme has been included in the review since it is interest-free. A similar scheme, the Pakhtunkhwa Hunermand Rozgar Scheme, also run by the Bank of Khyber, provides loans at 5% mark-up and has therefore not been considered part of the social protection framework in the province.
32. Department of Elementary and Secondary Education. (2012). PC 1 for Provision of Stipends to Secondary
Schools Girls Students of Khyber Pakhtunkhwa (Phase- VI); ADP No. 49 (DFID-Assisted). Government of
Khyber Pakhtunkhwa.
33. United Nations High Commissioner for Refugees. (2013). Afghan Refugees: Factsheet.
34. These refugees carry Proof of Registration cards issued by the Government of Pakistan, identifying them as Afghan refugees in Pakistan.