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Subnational State-Building IP Afghanistan Research and Evaluation Unit Synthesis Paper Series Subnational State-Building in Afghanistan Hamish Nixon April 2008 Afghanistan Research and Evaluation Unit Synthesis Paper Series Subnational State-Building in Afghanistan Hamish Nixon April 2008 © 2008 Afghanistan Research and Evaluation Unit. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, recording or otherwise without prior written permission of the publisher, the Afghanistan Research and Evaluation Unit. Permission can be obtained by emailing [email protected] or by calling +93 799 608 548. About the Author At the time of writing, Hamish Nixon was the Governance Researcher at AREU. Before joining AREU in March 2005 he held academic appointments at Kingston University and The Queen’s College, Uni- versity of Oxford. He completed his Ph.D. on comparative peace processes and postconflict political development at St. Antony’s College, Oxford. He has worked on postconflict governance and elec- tions in Afghanistan, the Balkans, the Palestinian Territories, El Salvador and Cambodia. He has published articles and chapters on citizen security, state-building and democratisation, subnational governance, and aid effectiveness. He is currently Subnational Governance Specialist with the World Bank in Kabul. About the Afghanistan Research and Evaluation Unit (AREU) The Afghanistan Research and Evaluation Unit (AREU) is an independent research organisation based in Kabul. AREU’s mission is to conduct high-quality research that informs and influences policy and practice. AREU also actively promotes a culture of research and learning by strengthening analytical capacity in Afghanistan and facilitating reflection and debate. Fundamental to AREU’s vision is that its work should improve Afghan lives. AREU was established in 2002 by the assistance community working in Afghanistan and has a board of directors with representation from donors, UN and other multilateral agencies, and non- governmental organisations (NGOs). Current funding for AREU is provided by the European Commis- sion (EC), the United Nations High Commissioner for Refugees (UNHCR), the United Nations Chil- dren’s Fund (UNICEF), United Nations Development Fund for Women (UNIFEM), the World Bank, and the governments of Denmark, Japan, Norway, Sweden, Switzerland and the United Kingdom. Acknowledgements The author would like to thank all the community members, shura members, Community Development Councils, district and provincial officials, and key informants who spent time with the research team, and all the local officials and NGO personnel who assisted with the practical matters associated with fieldwork in Afghanistan. Daud Omari worked closely with the author over a period of two years, and his understanding of Afghan institutions, insights, experience, forbearance, and willingness to travel to all parts of the country were essential to the successful completion of this research work. His role in both fieldwork and the analysis of the data collected were indispensable. The portions of this report dealing with the National Solidarity Programme would not have been possible without the contribution of Palwasha Kakar, and have benefited from the work of the CDC sustainability team at AREU under Jennifer Brick. This synthesis report has benefited from a wide range of discussions in Kabul and the provinces, with too many people to acknowledge here. Their contribution of time and insight has improved the work considerably, though errors of fact and interpretation are the responsibility of the author. Finally, the author would like to thank AREU colleagues and several anonymous reviewers whose comments have improved the quality and clarity of the report. AREU acknowledges the generous support of the UK Department for International Development (DFID) for this research. Hamish Nixon, April 2008 Table of Contents Glossary ............................................................................................................. ii Acronyms .......................................................................................................... iii Executive Summary ............................................................................................. iv 1. Introduction ................................................................................................. 1 1.1 Background and Rationale .......................................................................... 1 1.2 Key Concepts .......................................................................................... 2 1.3 Research Objectives and Methodology ............................................................ 4 2. The Governance Context of Afghanistan .............................................................. 7 2.1 Social and Economic Context ....................................................................... 7 2.2 Political and Institutional Context ................................................................. 9 3. State-Building in Provinces ............................................................................. 14 3.1 Formal Institutions in Provinces.................................................................. 14 3.2 Provincial Governors and Provincial Administration .......................................... 15 3.3 Provincial Development Committees: Coordination and Planning? ......................... 18 3.4 Provincial Councils: Representation and Accountability? .................................... 19 4. District Governance: Exploring the Government of Relationships ............................. 24 4.1 District Governors: The Gatekeepers ........................................................... 24 4.2 How Districts are Governed ....................................................................... 26 4.3 Governors and “Contradictory State-Building” ................................................ 32 5. NSP and CDCs: Changing Local Governance? ....................................................... 34 5.1 The National Solidarity Programme ............................................................. 35 5.2 Introducing the NSP ................................................................................ 37 5.3 CDC Roles in Community-Driven Development ................................................ 43 5.4 CDC Roles in Community Governance ........................................................... 48 5.5 Conclusions: CDCs in Local Governance ........................................................ 52 6. Conclusions and Recommendations .................................................................. 55 6.1 The Lack of Subnational Governance Policy ................................................... 55 6.2 Implementation of Subnational Governance Programmes .................................. 57 6.3 Barriers to Reform and the Art of the Possible ................................................ 57 6.4 Developing a Subnational Governance Policy .................................................. 58 Bibliography ...................................................................................................... 61 Recent Publications from AREU .............................................................................. 65 AREU Synthesis Paper Series Glossary Afghani (or Afs) official Afghan currency agir contracted civil service employee alaqadari rural or urban subdistrict arbab village leader; representative between community and central government; maintains communal property; can resolve disputes arbaki local militia linked to customary authorities beg large landowner hamaam public bath hauza subdistrict, historically often used for military or police organisation but without constitutional status jirga customary council/committee karmand permanent civil service employee khan large landowner malik village leader; representative between community and central government; maintains communal property; can resolve disputes manteqa area of living markaz “centre”, often refers to provincial municipality Meshrano Jirga upper house of the Afghan National Assembly mirab customary water rights controller nahia urban district pashtunwali customary Pashtun tribal code pir religious notable linked to one of the Sufi orders qaryadar village leader; representative between community and central government; maintains communal property; can resolve disputes qawm kinship group ranging in scope rish-i-safid elder, literally “white beard” sardar landowner shura customary council/committee Shura-i-Wolayati Provincial Council tariqat Sufi order tazkera National Identity Documents, or the department of the District Governor’s office responsible for issuing them ulema religious scholars woleswal District Governor/Administrator (sometimes spelled uluswal) wali Provincial Governor zamindar landowner ii Subnational State-Building in Afghanistan Acronyms AIHRC Afghanistan Independent Human Rights Commission ANDS Afghanistan National Development Strategy ASGP Afghanistan Subnational Governance Programme (UNDP) ASP Afghanistan Stabilisation Programme CDC Community Development Council CDD Community-Driven Development CDP Community Development Plan DACAAR Danish Committee for Aid to Afghan Refugees DFID Department for International Development (United Kingdom) DRRD Department of Rural Rehabilitation and Development (MRRD) FP Facilitating partner (NSP) GoA Government of Afghanistan I-ANDS Interim Afghanistan National Development Strategy
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