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World Bank Document Public Disclosure Authorized Public Disclosure Authorized THE SUSTAINABILITY OF CDCS APRIL 2013 Public Disclosure Authorized Public Disclosure Authorized This publication was produced by Altai Consulting for review by The World Bank, the MRRD and the IDLG. The authors views expressed in this publication do not necessarily reflect the views of The World Bank, the MRRD or the IDLG. ACKNOWLEDGEMENTS This report was prepared by Arezo Malakooti, Matthieu Dillais, Aschkan Abdul-Malek and Eric Davin (Altai Consulting). Field research teams in Badakhshan, Balkh, Bamiyan and Herat were managed by Atiqullah Sahibzada (Noma Consulting) and included Shingul Kaliwal, Eng. Homayun Mohmand, Eng. Wadood Mohmand and Abdul-Saboor Qaderi. Field research in Helmand and Nangarhar was managed by Emaad Noorhulluda and Mohammed Azim (Altai Consulting). We gratefully thank Ladissy Ichengula, Makiko Watanabe, Richard Hogg and Naila Ahmed (World Bank) for their valuable inputs and assistance. We are also indebted to Abdul Rahman Ayubi, Brigitta Bode, Jovitta Thomas (MRRD-NSP), Nader Yama, Sibghat Khan and Abdul Basir Saber (IDLG) as well as to all the Afghan government representatives, policy advisers, NGO workers, academic researchers and community members who shared with us their views on the various themes that this study covers. CDC Sustainability Assessment | Altai Consulting | 2013 2 TABLE OF CONTENTS List of Figures .....................................................................................................................................4 List of Tables ......................................................................................................................................5 List of Acronyms ................................................................................................................................6 I. Introduction and Methods ..........................................................................................................7 A. Introduction ................................................................................................................................ 10 B. Methods ...................................................................................................................................... 12 II. Understanding local governance and service delivery in Afghanistan ......................................... 25 A. Legal framework for local governance and service delivery ....................................................... 25 B. Existing local governance and service delivery institutions ........................................................ 33 III. Capacity and legitimacy of CDCs to work as VCs ..................................................................... 52 A. Perceived performance of CDCs ................................................................................................. 52 B. Sources of legitimacy and support for institutionalisation ......................................................... 69 C. Intermediary conclusions ............................................................................................................ 86 IV. Towards sustainable governance and service delivery ............................................................ 91 A. Designing a unified governance body at the village-level: appropriate roles for existing resources ............................................................................................................................................. 94 B. Assessing frequently mentioned scenarios .............................................................................. 101 C. Practical measures for a sustainable governance reform ........................................................ 111 Conclusions and recommendations ................................................................................................ 119 A. Conclusions ............................................................................................................................... 119 B. Implementation timeline .......................................................................................................... 121 Annexes......................................................................................................................................... 124 Annex 1 – Financial Sustainability ..................................................................................................... 124 Annex 2 – Literature reviewed .......................................................................................................... 127 Annex 3 – Research instruments – Separate document ................................................................... 130 CDC Sustainability Assessment | Altai Consulting | 2013 3 LIST OF FIGURES Figure 1 - Sustainability of CDCs: analytical framework .................................................................................................................. 14 Figure 2 - Geographic scope of research......................................................................................................................................... 15 Figure 3 - Ramifications of the validation or invalidation of the CDC election process for the creation of VCs ............................. 28 Figure 4 - Overview of Afghan sub-national entities involved in governance and service delivery ................................................ 33 Figure 5 - District level governance and service delivery structures ............................................................................................... 34 Figure 6 - Sub-district level governance structures ......................................................................................................................... 37 Figure 7 - Geographical and social delineations of Afghan districts ............................................................................................... 38 Figure 8 - Village-level governance actors ...................................................................................................................................... 40 Figure 9 - Template chart for governance actors' roles analyses .................................................................................................... 40 Figure 10 - Most commonly cited responsibilities of the Malik – All provinces (n=479) ................................................................ 42 Figure 11 - Classification of provinces covered based on the predominant village governance system ........................................ 42 Figure 12 - Most commonly cited responsibilities of village heads per province (n=128 to 160/province) ................................... 44 Figure 13 - Most commonly cited responsibilities of the CDC – All provinces (n=696) ................................................................... 45 Figure 14 - Most commonly cited responsibilities of CDCs per province (n=128 to 160/province) ................................................ 46 Figure 15 - Perceptions of the primary roles of the traditional shura – All provinces (n=136) ....................................................... 49 Figure 16 - Perceptions of the performance of CDCs on key governance and service delivery roles (n=352) ................................ 53 Figure 17 - Perceptions of the performance of CDCs in supervising development projects across provinces (n=352) .................. 53 Figure 18 - Perceived performance of CDCs in ensuring linkages with the district government across provinces (n=352) ........... 54 Figure 19 - Perceived performance of CDCs in resolving disputes across provinces (n=352) ......................................................... 55 Figure 20 - Perceived performance of CDCs in determining land boundaries across provinces (n=352) ....................................... 55 Figure 21 - Perceived performance of CDCs in certifying administrative documents across provinces (n=352) ............................ 56 Figure 22 - Perceived performance of CDCs in ensuring security across provinces (n=352)........................................................... 56 Figure 23 - Association between experience in maintaining similar sub-projects and sub-project status ..................................... 64 Figure 24 - Association between participation to an NSP/FP O&M training program and project status ...................................... 65 Figure 25 - Association between time of creation of an O&M committee and project status ....................................................... 65 Figure 26 - Comparison of perceived performance of CDC on key development and governance roles across wealth groups ..... 68 Figure 27 - Mapping of sources of legitimacy, authorities and main responsibilities at the community level ............................... 70 Figure 28 - "Do you think the CDC should still play a role in the community after the NSP is complete?” – Across provinces ...... 80 Figure 29 - Factors influencing perceptions and relative authority of CDCs (Expanded version) ................................................... 86 Figure 30 - Factors determining the perceptions and relative authority of the CDC (condensed version)..................................... 88 Figure 31 - Controlled classification of provinces covered based on the predominant village governance system ....................... 90 Figure 32 - “In the future, do you think the CDCs should be involved in the following roles…?” (n=704) .....................................
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