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Dissertation 2018-04-20 Contextually-Appropriate Institutional Development in Fragile States Lessons from Policy Implementation in Afghanistan Dissertation Research Report Prepared in Partial Requirement For the Degree of Doctorate in Governance Whitaker School of Government and Management Institute of Public Administration University College Dublin Andy Tamas BIS, BSW, MCEd April 20, 2018 Contextually-Appropriate Institutional Development in Fragile States 2 Abstract This research analyzed institutional development and policy implementation in Afghanistan, a so-called fragile (or “failed”) state to identify factors to be considered by foreign and local actors interested in strengthening good governance in such states. Its purpose was to analyze the extent to which the effectiveness of policy implementation initiatives was associated with the degree to which they were contextually-appropriate, that is, endogenous and compatible with the contexts in which they were being carried out. Six policy initiatives were analyzed: two focused on gender equity issues; one was in the early stages of creating a national monitoring and evaluation (M&E) system; two dealt with subnational government, and one established a mechanism for citizen involvement in municipal governance. Analysis drew from theories linked to governance, fragile state analysis, policy implementation, institutional development, anthropology, cross-cultural psychology, chaos theory, capacity building, adult education, organizational development and other fields. The findings indicated that although the two gender policies were the least effective in terms of full incorporation in the government’s operations, there were positive impacts from these seemingly failed efforts. The national M&E initiative seemed to be proceeding well toward implementation. One of the subnational governance initiatives, establishing district-level councils, was reported as being relatively effective due largely to an extensive participatory and politically-sensitive development process, but its implementation was halted because the new government changed its strategy in this area. The other, a new subnational governance policy, was in the early stages of being developed to replace its predecessor. The President wanted this new policy to be “Afghanized” – which was not clearly defined, but was consistent with the focus of this research. The municipal government policy had been in operation for over two years, a successful example of hybrid governance (Boege, Brown, & Clements, 2009) that incorporated a blend of so-called traditional and modern state elements to provide citizen input to their municipal administration. Among other frameworks, two contrasting institutional development approaches – labeled decisional and dialogical by Linder and Peters (1994) were used to analyze some of the factors involved in these initiatives. While the latter multi-stakeholder participatory strategy is often described as producing more effective policies, the Municipal Advisory Board case was an anomaly in that it used a small-group decisional strategy to design and implement an effective policy. The incorporation of traditional neighborhood representatives (Wakili Gozars) in this system indicated that appropriate contextualization may be able to overcome some of the difficulties often associated with the less participatory decisional approach. The research indicated that effectiveness of policy initiatives is linked to the extent to which they are contextually-appropriate. The study also commented on the relevance to fragile states such as Afghanistan of the models often used to analyze policy implementation and institutional development, noted several contributions to the literature, and identified areas for further research. Contextually-Appropriate Institutional Development in Fragile States 3 Research Ethics This thesis was deemed exempt from UCD’s Ethics Review inasmuch as all informants were government officials or development advisors and consultants speaking in their professional capacity. Declaration While some of work on this thesis was conducted while I was employed as a technical advisor for the German aid agency GIZ – and they approved of my doing this research alongside my job – the research was not a direct part of my consultancy work, with two exceptions: 1) The section on policy implementation contributed to preparation of the concluding chapter in a Monitoring & Evaluation Policy Framework which was submitted to the Office of the President; and 2) the Policy section also contributed to my input on the development of the government’s subnational governance policies. These inputs are noted in the body of the thesis. This thesis is all my original work, and no part of this thesis has been published elsewhere. Although much of this research was carried out while I was working with GIZ and other aid agencies, the opinions expressed are my own and do not reflect the official positions of my employers or any organizations or individuals mentioned herein. Contextually-Appropriate Institutional Development in Fragile States 4 Preface Why analyze institutional development in fragile states? International development is a massive enterprise which according to the World Bank spent over US$30B in 2012, about 22% of which was on Afghanistan. The global scale of the enterprise is significant. For example, the German development agency GIZ is considered the third-largest bilateral donor, after USAID and DFID, and it has some seventeen thousand employees in Germany and around the world. There are in addition other large and small German agencies involved in various aspects of the international development field. This is just one country’s operations – others, including multilateral agencies such as UNDP, are larger. There are questions about the effectiveness of the entire field, making it a worthy subject of analysis. One of the key assumptions of this research is that it is useful to try to strengthen governance in a context as turbulent and troubled as Afghanistan, and to better understand what is involved in this effort. In spite of an on-going insurgency, wide- spread corruption, disunity and predatory elite capture of the institutions of state, and in a donor-dependent rentier state that produces some 90% of the world’s opium and continues to be the site of others’ proxy wars, governance activity is taking place and well-intentioned leaders and officials are doing what they can – with international support – to improve the government’s performance and foster stability. This thesis is a small contribution to analyzing these efforts. Acknowledgements I am indebted to many friends, co-workers and especially family members who helped make this thesis possible – a number are listed here, and I apologize for any I have omitted. First and foremost are my wife Susie and our kids Peter and Sophie, my thesis advisors – Michael Mulreany and Graham Finlay, external examiner Sultan Barakat, and my fellow DGov students, especially Gerry and David. Others include Nader Yama, Zabihullah Sawayz, Saeed Khamoosh, Hamid Afghan, Gerd Sippel, Frydoon Shairzay, Sibghat Khan, Akmal Samsor, Michael Bond, Yves Morneau, Howard Petch, Claude Wiegand, Graham Riches, Hassan Sabri, Haleh Arbab, Mark Wedge, Martin Kreelak, Tony Atatsiak, Sarto Ippiak, Peter Ittinuar, Ray Barnhardt, Bill Ryan, Talib Alhamdani, Rohullah Amin, Ehsan Ullah, Momin Mansoor, Sebastian Leudtke, Parwiz Habib, Aarya Nijat, Nora Roehner, Abdul-Muqtader Nasary, Birte Brugmann, A-B Popal, Khalil Humam, Abdullah Raqeebi, Stefan Eherentraut, Kaethe Brakhan, Urs Schraede, Stephanie Kettler, Lima Ahmad, Butch & Germaine Elliot, Bob Watts, Sol Sanderson, Lee Brown, Khan-Tineta Horn, Ernest Tootoosis, Bjoern Richter, Mansoor Shah, Kai Leonhardt, Clare Lockhart, Stefan Hlavac, Samantha Reynolds, Rahela Hashim, Greg Wilson, Jolyon Leslie, Paul King, Denis Dunn, Ehsan Hail, Naheed Sarabi, Toor Wesa, Wali Hamidzada, Jamshid Arefi, Noor Zaheer, Nahid Farid, Robert Kressrier, Verena Blickwede, Agnes Bartholomaeus, Helmut Lang, Joerg Koncha, Harald Fuhr, Derick Brinkerhoff, Johannes Fritzen, Gerry Rodrigues, Najib Amin, Raoof Modaqiq, Nasir Figar, Nipa Banerjee, Moses Kiggundu, Michel Campeau, Peggy Florida, Daniel Burchardt, Jeff Coonjohn, Mohammed Hashem, Marcel Haessler, Markus Haake, Ikram Afzali, Farishta Sakhi, Geoff Minott, Ross Wherry, Chris Sundseth, Sigrid Nees, Enayat Contextually-Appropriate Institutional Development in Fragile States 5 Najafizada, Martine van Bijlert, Andy Veres, Yvonne Sidholm, Sima Samar, Lisa Akbari, Archie Moore, Rob Hart, Mike Capstick, Albert Wong, Tim Lannan, Ron Bell, Lamar Cravens, Rexane Rasmussen, Mustafa Mastoor, Orzala Ashraf, Ismail Rahimi, Tariq Ismati, Tamim Jebran, Islammudin Amaki, Sohrab Tawakoli, Andreas Selmeci, and my ghost writers in the sky, including my mom and dad, Emeric and Rosemary, Glen and Ruth, and others I have yet to meet. Special thanks to GIZ for supporting this work. Dedication This thesis is dedicated to the people of Afghanistan and the many other so-called fragile states who want little more than to live in a society that works. Contextually-Appropriate Institutional Development in Fragile States 6 Table of Contents List of Acronyms and Terms .................................................................................... 11 Chapter 1. Introduction ............................................................................................ 13 1.1. Project Summary ...............................................................................................
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