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International Aid in Afghanistan: Examining the Effectiveness of Traditional Aid and Development Programs Samuel A

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International Aid in Afghanistan: Examining the Effectiveness of Traditional Aid and Development Programs Samuel A Union College Union | Digital Works Honors Theses Student Work 6-2011 International Aid in Afghanistan: Examining the Effectiveness of Traditional Aid and Development Programs Samuel A. Merlin Union College - Schenectady, NY Follow this and additional works at: https://digitalworks.union.edu/theses Part of the International Relations Commons Recommended Citation Merlin, Samuel A., "International Aid in Afghanistan: Examining the Effectiveness of Traditional Aid and Development Programs" (2011). Honors Theses. 1034. https://digitalworks.union.edu/theses/1034 This Open Access is brought to you for free and open access by the Student Work at Union | Digital Works. It has been accepted for inclusion in Honors Theses by an authorized administrator of Union | Digital Works. For more information, please contact [email protected]. International Aid in Afghanistan: Examining the Effectiveness of Traditional Aid and Development Programs By Samuel Merlin Submitted in partial fulfillment of the requirements for Honors in the Department of Political Science UNION COLLEGE June, 2011 1 ABSTRACT MERLIN, SAMUEL International Aid in Afghanistan: Examining the Effectiveness of Traditional Aid and Development Programs. Department of Political Science, June 2011. Advisor: Michelle Penner‐Angrist The US‐led invasion of Afghanistan in 2001 brought to light the comprehensive destruction of the Afghan state. Twenty years of continuous war had ravaged the country, and with the Taliban’s expulsion of western aid agencies, Afghans were further deprived of their basic needs. The international community has rallied around this cause, donating nearly $40 billion in aid since 2001 to help develop Afghanistan. However, this international investment has not yielded optimal results; fundamental mistakes have limited the growth in capacity of the Afghan government and its people. Through analyzing the effectiveness of the major donor programs, a key lesson was learned: the absence of a unified development program has undermined the growth and capacity of the Afghan government. International aid programs in Afghanistan have revealed that providing a service of need trumps increasing the capacity of governance and rule of law. The status quo cannot persist—short‐term humanitarian efforts have been maxed‐out and need to shift to long‐term sustainable projects. To ensure the success of the Afghan state and remove its dependence on international aid, it is imperative to learn from past international aid mistakes and apply the proper changes to Afghanistan. 2 Table of Contents ABSTRACT 2 LIST OF ABBREVIATIONS 5 MAPS 7 CHAPTER 1: INTRODUCTION 11 CHAPTER 2: INTERNATIONAL AID AND AFGHANISTAN 14 CHALLENGES WITH INTERNATIONAL AID AND DEVELOPMENT 14 FRAMEWORK OF CONTEMPORARY AFGHANISTAN (1978­PRESENT) 16 ETHNIC DIVERSITY 16 PASHTUN: 17 TAJIK: 18 HAZARA: 18 SOCIAL AND POLITICAL INSTABILITY: 19 THE HISTORY OF INTERNATIONAL AID IN AFGHANISTAN 23 INTERNATIONAL DONOR CONFERENCES: 28 TOKYO, 2002: 28 BERLIN, 2004: 31 LONDON, 2006: 33 ROME, 2007: 35 PARIS, 2008: 36 CURRENT STATE OF AFFAIRS 38 CHAPTER 3: DONOR MANAGED AID 44 INTRODUCTION 44 NON­MILITARY AID 45 PROVINCIAL RECONSTRUCTION TEAMS (PRT): 45 COMMANDER’S EMERGENCY RESPONSE PROGRAM (CERP): 61 AFGHANISTAN SOCIAL OUTREACH PROGRAM (ASOP): 67 DISTRICT DELIVERY PROGRAMS (DDP): 69 ECONOMIC SUPPORT FUND (ESF): 71 MILITARY AID 73 AFGHANISTAN SECURITY FORCES FUND (ASFF): 73 COMBINED SECURITY TRANSITION COMMAND – AFGHANISTAN (CSTC‐A): 79 DEPARTMENT OF DEFENSE DRUG INTERDICTION AND COUNTER‐DRUG ACTIVITIES (DOD CN): 83 INTERNATIONAL NARCOTICS CONTROL AND LAW ENFORCEMENT (INCLE): 85 CHAPTER 4: AFGHAN GOVERNMENT­MANAGED AID 90 INTRODUCTION 90 TRUST FUNDS 91 AFGHANISTAN RECONSTRUCTION TRUST FUND (ARTF) 91 LAW AND ORDER TRUST FUND FOR AFGHANISTAN (LOTFA) 97 COUNTER NARCOTICS TRUST FUND (CNTF) 101 3 CHAPTER 5: CONCLUSION 105 INTERNATIONAL­LEVEL 105 INTERNATIONAL SUPPORT FOR DEVELOPING THE AFGHAN GOVERNMENT 105 INTERNATIONAL‐LEVEL PROBLEMS IN AFGHAN DEVELOPMENT 117 STATE­LEVEL 125 AID AND DEVELOPMENT PROBLEMS WITHIN AFGHANISTAN 125 RECOMMENDATIONS FOR AFGHANISTAN 130 HOW TO ENSURE SUSTAINABLE DEVELOPMENT AND A FUNCTIONING GOVERNMENT 130 BIBLIOGRAPHY 137 4 List of Abbreviations AACA Afghan Assistance Coordination Authorities ABP Afghan Border Police ADB Asian Development Bank AIA Afghan Interim Administration ANA Afghan National Army ANAAC Afghan National Army Air Corps ANBP Afghan New Beginning Program ANDS Afghanistan National Development Strategy ANP Afghan National Police ANSF Afghan National Security Forces ARTF Afghanistan Reconstruction Trust Fund ASFF Afghanistan Security Forces Fund ASOP Afghan Social Outreach Program CDC Community Development Council, Afghanistan CERP Commander’s Emergency Response Program CENTCOM US Central Command CNTF Counter‐Narcotics Trust Fund CSTC‐A Combined Security Transition Command – Afghanistan DAA District Development Assemblies DDP District Development Program, Afghanistan DDR Disarmament Demobilization and Reintegration DFID Department for International Development, UK DoD US Department of Defense DoD CN US DoD Drug Interdiction and Counter‐Drug Activities DoS US Department of State DST District Support Team DRA Democratic Republic of Afghanistan EFT Electronic Fund Transfer System, Afghanistan EQUIP Education Quality Improvement Plan, Afghanistan EPS Electronic Payment System, Afghanistan ESF Economic Support Fund (USAID) EU European Union FATA Federally Administered Tribal Areas GAO US Government Accountability Office GIRoA Government of the Islamic Republic of Afghanistan IED Improvised Explosive Device IFC Intelligence Fusion Centers, Afghanistan IFI International Finance Institutions INCLE International Narcotics Control and Law Enforcement ISAF International Security Assistance Force ISI Pakistani Inter‐Services Intelligence JCMB Joint Coordination and Monitoring Board KMTC Kabul Military Training Center 5 LOTFA Law and Order Trust Fund of Afghanistan MLOT Military Liaison Observation Teams MoCN Afghanistan Ministry of Counter Narcotics MoD Afghanistan Ministry of Defense MoI Afghanistan Ministry of Interior MoF Afghanistan Ministry of Finance MOT Military Observation Teams NABDP National Area‐Based Development Program NDCS National Drug Control Strategy NIM National Implementation Modality NMT‐A NATO Military Training – Afghanistan NSP National Solidarity Program OEF Operation Enduring Freedom OSC‐A Office of Security Cooperation – Afghanistan PDPA People’s Democratic Party of Afghanistan NGO Non Governmental Organization PRT Provincial Reconstruction Team QRF Quick Response Force, Afghanistan PRTs SSR Security Sector Reform, Afghanistan UNAMA United Nations Assistance Mission in Afghanistan UNDP United Nations Development Program USAID United States Agency for International Development 6 Maps “Quarterly Report to the United States Congress,” Special Inspector General for Afghanistan Reconstruction, July 30, 2010. 7 Afghanistan By Ethnicity, 2009 “Afghanistan's ethnic diversity,” CNN Asia, August 19, 2009 http://edition.cnn.com/2009/WORLD/asiapcf/08/17/afghanistan.ethnic.groups/index.html 8 9 “ISAF Maps & Logos,” International Security Assistance Force, NATO. http://www.nato.int/isaf/docu/epub/maps/index.html 10 Chapter 1: Introduction Afghanistan is a highly diverse and comprehensively destroyed country. Since the US‐led invasion in 2001, there have been ongoing development and aid practices that need to be analyzed for effectiveness. However, Afghanistan is a very complex country, and in order to launch a successful development program it is important to note Afghanistan’s diverse demography and recent political history. Powerful entities are spread throughout Afghanistan, ranging from ethnic groups to tribes and power brokers. The first chapter aims to outline the overarching goals of international aid, while providing a brief historical analysis of the modern Afghan state, 1978‐Present. Understanding the political history of Afghanistan is of fundamental importance in order to maintain a strong and effective aid program in Afghanistan. Over the last ten years nearly $40 billion has been invested in the Afghan state from international donors. This massive international investment is dependent on Afghanistan developing governmentally, economically, and socially. To ensure that this investment is effectively utilized, aid must be analyzed based on where it is has been spent, what projects it has supported, and what results or achievements this aid has yielded. Aid was analyzed from donor‐managed and Afghan‐managed entities, examining the major development projects of each entity to deduce if projects and the aid funding them are achieving positive results—further developing the Afghan state. This research revealed glaring problems in the international approach to development in Afghanistan, starting with a fundamental neglect of nation‐building activities in Afghanistan during the first eight years, 2001‐2008. While aid has increased over the past five years, the 11 majority of this aid is still controlled and managed directly by the donor‐nation, bypassing the Afghan government. The international community continues to pledge to increase funding through the Afghan government, but in practice fails to do so. This action, coupled with a continuing shortfall between pledged and allocated aid, has resulted in lack of growth and development in capacity of the Afghan government. Afghans are constantly left out of discussions and efforts to develop their country, a fundamental flaw in development
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