15/06 Prelim Pages

Islamic Republic of Afghanistan Ministry of Rural Rehabilitation and Development

National Solidarity Programme

Post-war Reconstruction & Development Unit (PRDU)

Mid-term Evaluation Report of the National Solidarity ACKUProgramme (NSP), Afghanistan

May 2006

Evaluation Team Leader Professor Sultan Barakat ACKU Islamic Republic of Afghanistan National Solidarity Ministry of Rural Rehabilitation Programme and Development

Mid-term Evaluation Report of the National Solidarity Programme (NSP), Afghanistan

ACKU May 2006

Evaluation Team Leader Professor Sultan Barakat

Post-war Reconstruction & Development Unit (PRDU) Evaluation Team

Team Leader: Regional Assessment Team Leaders:

Professor Sultan Barakat Dr Margaret Chard (BA, MA, MSc, PhD) (BSc, MA, DPhil, ICDDS) Dr David Connolly (BA, MA, PhD) Founding Director of the Post-war Dr Richard Jones (BA, MA, MSc, PhD) Reconstruction and Development Unit, Mr Waheed Omer (BA, MA) University of York. Mr Mirwais Wardak (BA, MA).

Specialist in Public Institutions: Regional Assessment Team Members:

Professor Mark Evans (BA, PhD) Mr Khushal Akhtar Head of Department of Politics, Mr Malaiz Daud University of York. Mr Jawed Nader Ms Marina Nawabi Mr Samiullah Nazemi Dr Lida Rahimi Specialist in Mr Qutabuddin Roydar Community Development: Dr Khalid Sharifi Ms Asila Wardak Dr Arne Strand (MA, PhD) Mr Idrees Zaman. Researcher at Chr. Michelsen Institute, Bergen, Norway.

Specialist in Infrastructure Projects:

Engineer Richard Brown (BSc, MBA, MA, CEng, CDipAF, DipM, FICE, FCILT, MCMI, MCIM) Associate Director, Arup, UK. ACKU

All rights reserved. No part of this book may be reproduced or transmitted in any form or by any means electronic, mechanical or otherwise without the prior permission from the publishers – Post-war Reconstruction & Development Unit (PRDU), The University of York NSP AFGHANISTAN (see back cover for contact details). Mid-term EVALUATION REPORT Table of Contents

page page Preliminary Pages The role of the NSP Oversight Consultant in programme List of Abbreviations v management and coordination 27 List of Illustrations vi Summary and recommendations Preface vii for national level coordination 34

3. Sub-national Level Coordination Main Report and Operational Delivery of the NSP 37 Executive Summary 1 The MRRD and provincial Programme design and rationale 3 and district government 37 National level programme The provincial OCs and teams 45 management and delivery 4 The role of the Facilitating Sub-national coordination and Partners in NSP coordination operational delivery of the NSP 7 and operational delivery 49 The role of Community Development Councils in programme management 4. The Role of Community and operational delivery 10 Development Councils in Representative Governance The enhancement of and Community Development 69 NSP engineering projects 13 The strategy for evaluating NSP Financial Operations 15 Community Development Community Development Councils 69 Councils and future The Community Development governance in Afghanistan 16 Council Community Power Linkages with the evaluation Survey 70 of other community-driven Principal findings 70 development programmes 17 The Household Survey 77 ProgrammeACKU costs, expectations and impact 17 Conclusions 91 Recommendations for CDCs 94 Findings and Recommendations: 5. An Analysis of National 1. Programme Design Solidarity Programme and Rationale 19 Engineering Projects 97 Analysis 19 Methodology 97 Summary and recommendations Project relevance 97 for programme design and rationale 22 Project quality and sustainability 98 Project management 99 2. National Level Programme Management and Coordination 25 Intangible benefits 99 National level coordination Key recommendations for committees 25 the enhancement of NSP engineering projects 100 page page

6. National Solidarity Programme Annexes Financial Operations 103 A1. General Introduction 135 Financial processes 103 Map of Research Districts 136 Obstacles to effective A2. Evaluation Methodology 137 operational delivery 104 Key recommendations Field Research Findings: for financial operations 105 A3. Badghis Province 143 A4. Balkh Province 163 7. Programme Enhancement 107 A5. Bamyan Province 203 A new institutional venue for the National Solidarity A6. Herat Province 217 Programme 107 A7. Kabul Province 223 Community Development A8. Kundoz Province 245 Councils and future governance in Afghanistan 108 A9. Nangarhar Province 265 Annex 1. Laghman Province 296 The role of the National Solidarity Programme in A10. Paktia Province 301 poverty reduction 110 A11. Paktika Province 307 Measuring the performance A12. Takhar Province 313 of the National Solidarity Programme 112 B1. Terms of Reference 321 Government capacity development in National Solidarity Programme Phase 2 115 C1. Stakeholders Consulted 327 The Management of cultural change in the National D1. References 333 Solidarity Programme Phase 2 116 Gender issues for Phase 2 of the National Solidarity Programme 119

8. In Conclusion – Programme Costs, Expectations and Impact 121 Approach 121 ACKU Programme costs 122 Programme expectations 123 Programme benefits 127 Programme efficiency and effectiveness 130

NSP AFGHANISTAN Mid-term EVALUATION REPORT List of Abbreviations

AKDN Aga Khan Development MISFA Micro Finance Investment Network Support Facility of Afghanistan ARTF Afghanistan Reconstruction M&E Monitoring and Evaluation Tr ust Fund MRRD Ministry for Rehabilitation and BRAC Bangladesh Rural Action Rural Development Committee MoU Memorandum of Understanding CBD Community Based NABDP National Area Based Development Development Programme CDC(s) Community Development NEEP National Emergency Council(s) Employment Programme CDD Community Driven NGO Non-Governmental Development Organization CDP Community Development Plan NSP National Solidarity Programme CDSO Community Development OC Oversight Consultant Support Officers OECD Organization for Economic CIDA Canadian International Cooperation and Development Development Agency OM Operational Manual CHA Coordination of Humanitarian Assistance PCU Public Communication Unit DAB Da Afghanistan Bank PO Provincial Office DAI Development Alternatives PRT(s) Provincial Reconstruction Incorporated Team(s) DFID Department For International PRDU Post-war Reconstruction and Development Development Unit, University of York DRRD Department for Rural Rehabilitation and Development PSG Professional Skills for Government EU European Union ACKURAT(s) Regional Assessment Team(s) FHH Female Headed Households RuWATSAN Rural Water Supply and FP(s) Facilitating Partner(s) Sanitation Programme GRSP Ghanzi Rural Support SDF Sanayee Development Programme Foundation GTZ/IS Deutsche Gesellschaft für SO Social Organizer Technische Zusammenarbeit/ International Services UNAMIR United Nations Assistance Mission for Rwanda IDA International Development Association UNHCR United Nations High Commision for Refugees IDP Internally Displaced Person UNICEF United Nations International JICA Japan International Cooperation Children’s Emergency Fund Agency USAID US Agency for International MHP Micro Hydro Power Development MIS Management Information WB World Bank System v List of Illustrations

page page

Boxes Figures

Box 1. The organizational structure Fig 1. Professional skills of the NSP Oversight for government 116 Consultant, GTZ-DAI 28 Fig. 2. Composition of NSP total Box 2. The training of DRRD costs (Dec 04 to Feb 06) 122 staff in Kundoz 41 Fig. 3. Composition of NSP Box 3. Transportation stress programme delivery costs in Bamyan 42 (Dec 04 to Feb 06) 122

Box 4. Villages unified in Balkh 46 Fig 4. Mapping obstacles to NSP success/failure 125 Box 5. Weak community capacities in Nangarhar 46

Box 6. An integrated approach to Tables DRRD capacity development in Kabul 48 Table 1. The operations of NSP Facilitating Partners 50 Box 7. BRAC in Nangarhar 57 Table 2. The disbursement process Box 8. Identifying community in the context of programme priorities through project development 103 selection – Examples from CHA and UN-HABITAT 61 Table 3. Governance in the Islamic Republic of Afghanistan 109 Box 9. Examples of the issue of appropriate design and Table 4. The Impact of the NSP construction – CHA on community poverty 111 District Team in Balkh 64 Table 5. Programme obstacles 123 Box 10. Examples of the issue of ACKU appropriate design and Table 6. NSP outputs – September construction – The BRAC 2003 to February 2006 130 Team in Nangarhar 65 Table 7. NSP capacity development 131

Table 8. NSP projects 131

NSP AFGHANISTAN Mid-term EVALUATION REPORT

vi Preface

Tw enty-five years of conflict has left munities to social and productive infrastruc- Afghanistan with a profound need for ture and services. extensive intervention to address reconstruction and development requirements, The implementation strategy of the NSP particularly in rural areas, many of which consists of four core elements: (1) facilita- were never reached by consecutive govern- tion at the community level to assist com- mental developmental plans. In 2002, the munities to establish inclusive community transitional administration of the country institutions (CDCs) through elections, recognized that the legitimacy of the new reaching consensus on priorities and corre- government by the rural population sponding sub-project activities, developing depended in no small measure on its ability eligible sub-proposals that comply with NSP to deliver long-awaited assistance to rural appraisal criteria, and implementing communities across the country, and the approved sub-projects; (2) a system of idea for the National Solidarity Programme direct Block Grant transfers to support was born. The Programme was designed rehabilitation and development activities and initiated in 2003 under the Ministry of (sub-projects) planned and implemented by Rural Rehabilitation and Development the elected CDCs; (3) a series of capacity- (MRRD), and was financed by a consortium building activities to enhance the compe- of international donors coordinated by the tence of members of CDCs (both men and World Bank. women) in terms of financial management, procurement, technical skills, and trans- The Programme attempts to target the parency; and (4) activities linking local insti- needs of rural communities by employing tutions to government administration and community-driven development, delivered aid agencies with available services and 1 The other 4 programmes through a collaborative partnership, encom- resources. include: NEEP – the National passing central government, local and inter- Emergency Employment national non-governmental organisations The MRRD recognizes that the quality of the Programme, aimed at assisting (NGOs), and the communities – repre- implementation process of the NSP is the most vulnerable with sented by specially devised Community essential for the long-term sustainability of employment opportunities in Development Councils (CDCs). Today, the community investments and for the overall public infrastructure; WATSAN NSP forms the central component of an success of the Programme. As such, at the – the Rural Water and Sanitation architecture of national programmes community level the identification of priori- Programme, aimed at improving managed by the MRRD, designed both to ties and the planning of sub-projects are health, hygiene and improving help the Afghan people to rebuild their lives based on the basic principles of participa- the child mortality rate; MISFA and nation,ACKU and to demonstrate that the tory planning through: inclusive community – the Micro-Finance Investment Afghan government, with technical assis- meetings and representative elected devel- Support Facility of Afghanistan, tance, could develop the inclusive gover- opment councils; community contributions aimed at improving the lives of nance structures required to sustain a stable to capital costs and operation and mainte- the poor and vulnerable through state.1 nance; and project transparency and the provision of micro credit; accountability to the community. In order to and NABDP – the National As described in the founding document of help the MRRD achieve its targets, an Area Based Development the NSP, the goal of the Programme is to Oversight Consultant (GTZ/IS) was con- Programme, aimed at developing reduce poverty through empowering com- tracted to oversee the overall management the capacity of national, munities with regard to improved gover- and supervision of the NSP. In addition, the provincial, and local authorities nance, and social, human, and economic MRRD has contracted 22 NGOs (both to enable them to plan, finance, capital. It attempts to achieve this goal national and international) and UN- and manage recovery and through pursuing two main objectives: (1) HABITAT to facilitate the delivery of the NSP development interventions. to lay the foundations for a strengthening of in selected districts, across all the provinces community-level governance, and (2) to of Afghanistan. These non-governmental support community-managed sub-projects organizations are termed Facilitating comprising reconstruction and develop- Partners (FPs), and their role is to facilitate ment that improve the access of rural com- community participation in the planning,

vii implementation and management of sub- but also goes further by investigating projects financed by the NSP Block Grants. evidence for qualitative sustainable impacts on the core objectives of the Programme, While the NSP-Oversight Consultant (OC) namely, local governance and poverty has been unable to meet the targets for reduction.3 December 2004 to August 2006 established in its contract with the MRRD, its progress Any evaluation of reconstruction efforts in has nonetheless been remarkable since it war-torn countries inevitably suffers from started in September 2003. Moreover, the the same constraints as the efforts them- importance of the NSP is reflected by its selves: inadequate time and resources, the overt achievements to date. Its reach inaccessibility of key sites, incomplete infor- encompasses 193 districts in all 34 mation and a tight work schedule. With this provinces, and has benefited 10.5 million being a mid-term evaluation, there is the Afghans. More specifically, it has engaged added complication of examining a with 22,500 rural communities covering programme that is very much on ‘the 38,000 rural settlements, which has so far move’: millions of dollars are being resulted in the election of more than 10,000 disbursed as we evaluate, and policy adjust- CDCs. From this, 14,000 projects in 8,000 ments are being made; a new version of the communities have been financed, with Operational Manual has now been Block Grant disbursements amounting to completed; and plans and pledges have US $166.1 million and total Block Grant been made for Phase 2. By way of illustra- commitments of US $214.6 million. Overall, tion, it is noteworthy that several of our rec- more than 4,000 sub-projects have been ommendations in our November Inception completed successfully.2 In addition, this Report have already been implemented – evaluation identifies significant evidence of: testimony to the reflexivity of the OC to (1) increased public faith in the system of issues of programme enhancement. In our government; (2) improved community Inception Report we originally defined the relations; (3) improved state-civil society cut-off point of the period of evaluation (in relations; and (4) the empowerment of terms of data and reports consulted) as the CDCs. end of July 2005. We have subsequently amended the period of evaluation to the In November 2005, the Post-war end of March 2006 to include commentary Reconstruction and Development Unit on some notable developments in pro- (PRDU) at the University of York, U.K., led gramme management and enhancement. by Professor Sultan Barakat, was contracted by the MRRD to undertake a mid-term eval- In addressing these challenges to the nature uation of the NSP over a period of 6 months. of our assessment of the Programme, the The central aim of the evaluation was to PRDU employed a composite and participa- examine the achievements and drawbacks tory evaluation approach. A range of investi- of the Programme two years into its imple- gation methods were used based on the mentation. The midway point for the NSP nature of the data available and the was seen as an opportune moment to questions posed.4 While informed by best reflect on what has been achieved and to practice theory located within specialized make recommendations for improving the ACKUacademic literature, this evaluation is post mid-term evaluation phase (Phase 2) of grounded in qualitative empirical data 2 See NSP OC (2006), the Programme. The PRDU was asked to drawn from: extensive national and sub- Analysis of the Experiences report its findings in relation to the effi- national level interviews, and a series of and Lessons Learned in Program ciency and effectiveness of the implementa- exploration and validation workshops held Implementation, GTZ-IS, Kabul, tion of the NSP as well as its potential with the groups of NSP stakeholders. Within March 2006, pp. 3–5. impact, rationale and longer-term contribu- each of the 11 provinces researched, the tion to governance and development in research teams interfaced with the main 3 See Annex B, ‘Terms of Afghanistan. The team was also asked to NSP actors and their respective levels of Reference’. provide recommendations with regard to: authority (provincial governor, provincial the approach and institutional arrange- and district level RRD, OC and FP).5 The 4 See Annex A2, ‘Methodology’. ments to improve the delivery and impact of scope was then extended to strategically the Programme; and the long-term strategy sampled communities and districts within 5 See Annex C, ‘Stakeholders for the integration of relevant programme these provinces. Both community power Consulted’. functions into the institutional profile of the and household surveys were employed to MRRD. Accordingly, this evaluation report capture a gender-balanced perspective of considers not only the physical outputs and the NSP from the viewpoint of its chief ben- NSP AFGHANISTAN other more tangible programme benefits, eficiaries. The interviews and surveys also Mid-term EVALUATION REPORT

viii contained an engineering-based assess- can be used to safeguard and stimulate fur- ment, which provided a technical under- ther policy development and best practice standing of the physical outputs. for the reconstruction of Afghanistan. Throughout these integrating levels of inquiry, documentary and multi-level insti- Professor Sultan Z Barakat tutional analyses proved essential. In the NSP Mid-Term Evaluation Team Leader absence of base-line time series data, a PRDU, University of York, York, U.K. pragmatic inclusive approach to evaluating 3 May 2006 programme costs and benefits was deployed to provide an assessment of the overall impact, efficiency and effectiveness of the NSP. The field data was then studied in York during three main stages of analyses.

The PRDU brings to this task 13 years of diverse experience in linking theory to practice in post-conflict reconstruction and development in over 15 countries. This includes expertise both in Afghanistan, and in community rehabilitation and rural development. As the team leader, I have had the gratification of working with an extremely competent team. At the national and strategic level, the insights of Professor Mark Evans (public institutions), Dr Arne Strand (community development), and Engineer Richard Brown (infrastructure projects) were central to the successful completion of this evaluation. The extensive field research at the sub-national level was equally crucial and was conducted by PRDU Research Fellows Dr Margaret Chard, Dr David Connolly, and Dr Richard Jones. In completing this field research they in turn were joined by an excellent team of Afghan researchers: Mr Waheed Omer, Mr Mirwais Wardak, Mr Khushal Akhtar, Mr Malaiz Daud, Mr Jawed Nader, Miss Marina Nawabi, Mr Samiullah Nazemi, Dr Lida Rahimi, Mr Qutabuddin Roydar, Dr Khalid Sharifi, Mrs Asila Wardak, and Mr Idrees Zaman.

Finally, I would like to express my utmost appreciationACKU to all NSP stakeholders for the cooperation afforded to this evaluation at all levels. This has included the MRRD, donors, OC (national and provincial levels), provincial governors, provincial and district RRD staff, the Facilitating Partners (national, provincial and district levels), the NSP communities themselves, and even communities not benefiting from the NSP. All of these gave their time unreservedly. In particular, I am especially grateful to HE Hanif Atmar (Minister for RRD), Ehasan Zia (Deputy Minister for RRD), Raz Mohammad (Deputy Minister, Finance, for RRD), Asif Rahimi (NSP Chief Coordinator), Andreas Schild (OC Team Leader), and Jovita Thomas (OC Deputy Team Leader). I hope that the PREFACE learning process captured in this document

ix ACKU

NSP AFGHANISTAN Mid-term EVALUATION REPORT Executive Summary

Since the late 1990s donor support via the the benefits of the NSP justify the World Bank for community participation has overhead costs of the Programme, shifted away from community-based devel- particularly in years one and two of the opment (CBD) with its emphasis on collab- Programme. Moreover, overhead costs oration, consultation and information- should diminish dramatically as a conse- sharing, towards community-driven devel- quence of: a) lesson-learning from Phase opment (CDD) which affords communities 1; b) the elimination of unnecessary control over decision-making processes and bureaucracy through the simplification resources in the design and implementation of delivery systems; and c) the of sub-projects.1 This evaluation argues that provision of political support to remove the Islamic Republic of Afghanistan’s bottlenecks in the delivery process. National Solidarity Programme (NSP) has the potential to become a beacon of good However, we are also of the view that with practice amongst CDD programmes.2 Phase some fundamental refinements – anchored 1 of the NSP has undoubtedly been a success in improved programme management and given the difficult environment in which it coordination at the national and provincial has operated. Indeed, only a small minority levels, the simplification of delivery systems of our respondents questioned the success and the consolidation of CDCs – the post- of the Programme. It is observed that: mid term evaluation of the NSP (or what we will term NSP Phase 2) could yield some 1 See Independent the establishment of the NSP was a outstanding developmental achievements Evaluation Group (2005), rational and far-sighted response to the in terms of both sustainable institution- ‘The Effectiveness of World Bank need for rapid signs of state building in building and economic growth. Support for Community-based the rural communities of Afghanistan; and -driven Development’, We therefore recommend that the donor ACKU the achievements of the NSP, Washington, World Bank, community should support the NSP for a particularly in terms of building available on-line at http:// medium- to long-term period of 10 years in community and national solidarity www.worldbank.org/ieg/cbdcdd/. order to consolidate its gains and fulfil its through the establishment of potential. During this period a new institu- Community Development Councils 2 Although it should be tional venue will need to be established for (CDCs) and CDD sub-projects, observed that CDD’s are the delivery of the NSP so that the MRRD outweigh its initial design and provided with significant can assume the role of the OC. We operational weaknesses; technical support and it is often recommend the creation of an executive difficult to disentangle the views given the extremely challenging agency, a model of service delivery currently of Facilitating Partners from the environmental constraints that have deployed in most Organization for views of communities. Hence bedevilled the implementation of Economic Cooperation and Development the claim of perfect autonomy the NSP, all stakeholders have a (OECD) member states, as the key features is questionable. good reason to be proud of their of an executive agency fit with the MRRD’s achievements in Phase 1 – Government, immediate institutional and human provisional government, Oversight resource needs. Consultant (OC), Facilitating Partners (FPs), communities and their CDCs; It is also recommended that the NSP coor- and,

1 dination problems that have been experi- to the strengthening of the CDCs, the sus- enced at all levels of governance in Phase 1 tainability of its impact and the long-term need to be dealt with in Phase 2, through capacity development of the MRRD. In par- more effective donor coordination and the ticular, further strategies need to be establishment of a ‘whole government’ developed to enhance the participation of approach to the national coordination of women, both in community governance the NSP as the pillar of a national rural and in project implementation, and the development strategy. This would foster inclusion of the poorest of the poor and dis- multi-level inter-ministerial cooperation and advantaged as beneficiaries. improve the opportunity for more proactive donor support through enhanced collabo- Finally, NSP Phase 2 would also benefit from rative decision structures at the national launching a longitudinal study of the level. In addition, the potential for sharing programme in association with the resources between the two main comple- University of Kabul and other international mentary national programmes imple- centres for the study of reconstruction and mented by MRRD – the NSP and the development, to ensure that lessons learnt National Area Based Development are well documented and that archive Programme (NABDP) – should be fully material is utilized in the training and realized. Our suggestion would be to pool education of Afghanistan’s future develop- some of the Oversight Consultant resources ment cadre. for the two programmes in a manner that ensures effective coordination and There follows an overview of the key economies of scale, and maximizes impact findings of the mid-term evaluation and rec- in terms of economic growth and good gov- ommendations for Phase 2 which corre- ernance at the provincial and village levels. spond to: programme design and rationale; This recommendation could be further national level programme management and articulated as part of the OC exit strategy coordination; sub-national level programme that is currently being finalized. management and coordination; the role of CDCs in programme management and The role of the FPs has been crucial in the operational delivery; programme enhance- social mobilization and capacity development; and programme costs, expectations ment of CDCs, and will need to continue for and impact. The evaluation draws on quali- the short- to mid-term due to limited MRRD tative data derived from: extensive national capacity at the district and community and sub-national level interviews; two levels. The future role of the FPs rests on workshops held with all NSP stakeholders; a whether the NSP remains purely a develop- community power survey; a household ment programme or whether the gover- survey; an engineering analysis; and docu- nance component of the programme mentary and multi-level institutional assumes a greater role in NSP Phase 2. We analysis. An inclusive approach to evaluating would encourage the latter, in which CDCs programme costs and benefits is deployed are granted a constitutional role with to provide an assessment of the overall statutory responsibilities at the village level. impact, efficiency and effectiveness of the By implication this would involve the NSP. extension of the public administrative ACKU system from the district to the CDC level The NSP is now recognized both by the through the establishment of an elite of people of Afghanistan and the international Community Development Support Officers community as the central policy instrument (CDSOs). The role of the CDSO would be to for Afghan state building and development. assume the role of FPs and provide The MRRD, the NSP OC and the FPs should technical support to the CDC in all of its be proud of their achievements. The core competences. The establishment of following recommendations for NSP Phase 2 this technocratic elite, with attractive condi- aim to build on and consolidate these tions of service, is central to the long-term impressive achievements. However, two sustainability of CDCs and should be a key notes of caution need to be addressed at component of the NSP’s consolidation this juncture. First, it is necessary to strategy. This proposal will also require a emphasize the importance of differentiating long-term capacity development strategy between short- and longer-term recommen- which should be integrated with broader dations, particularly in relation to the MRRD processes of civil service reform. assuming the operational delivery role at the national, provincial and district levels. NSP AFGHANISTAN The programme design itself should also be This will need to be careful phased in, and Mid-term EVALUATION REPORT further developed, with consideration given rests on developing the capacity of MRRD

2 officials to act. Secondly, the consideration the process of programme design and of these courses of action should take into inception, which have created operational consideration the costs of change, which obstacles that need to be surmounted in should be calculated on: a) their capacity to Phase 2. improve qualitative rather than quantitative output, and b) the likelihood that they will survive for a considerable time. Recommendation 1 The political objectives of the NSP (e.g. the establishment of CDCs within the formal system of local governance) need to be Programme design and rationale expressed more overtly within the Programme objectives. The evaluation of NSP programme costs and benefits reveals significant gains to the Afghan people in relation to institution- building (limited democratization), capacity Recommendation 2 development (mainly in skills develop- New ‘simplified’, ‘realizable’ and publicly ment), and social solidarity at the national ‘knowable’ programme objectives and a and community levels (and to a lesser ‘simplified’ and ‘realizable’ set of perform- degree at the provincial and district levels). ance indicators need to be drawn for NSP Impressive benefits have also been derived Phase 2 which express the governance, economically by: creating livelihood oppor- capacity development and economic tunities and direct forms of economic devel- growth objectives of the NSP more explicitly opment through improved productive so that they can be measured over time. capacity and the provision of work in relation to certain NSP projects; and the Monitoring systems should be simplified to provision of indirect forms of economic focus on developing time series data around development, facilitated by increased a simplified set of performance indicators. A economic activity arising from improved coherent and consistent representative infrastructure and savings derived from sample of community profiles drawn to lower costs of production. Important gains common criteria needs to be completed for in gender equality have also been achieved comparative and evaluative purposes. in certain regions.

These benefits justify the overhead costs of the Programme particularly in years 1 and 2 Recommendation 3 of the Programme. Moreover, overhead NSP Phase 2 should be a period of consoli- costs should diminish dramatically as a con- dation rather than expansion. The aim of sequence of: a) lesson-learning from Phase rolling out the NSP to 6,800 communities in 1; b) the elimination of unnecessary bureau- Year 3, despite the considerable backlog of cracy through the simplification of delivery Year 1 and 2 projects, is not tenable. There systems; and c) the provision of political should be a greater focus on quality rather support to remove bottlenecks in the than quantity to allow for effective social deliveryACKU process. However, these achieve- mobilization and institution-building to ments will need to be consolidated in the take root, and for projects to be sustained ways suggested above in order to ensure through high quality community develop- the long-term future of what may be ment planning. A twin track process of deemed a development programme of out- consolidation and expansion should be standing potential. devised. A Phase 2 Consolidation Strand should be aimed at CDCs who have successfully completed sub projects. An action Design improvements in overview zone approach should be deployed where Overall, Phase 1 of the NSP has undoubtedly appropriate within this strand whereby been a success, given the difficult environ- CDCs sharing common CDP goals should ment in which it has operated. Indeed, only be encouraged to engage in joint program- a small minority of our respondents ques- ming to meet community priorities and tioned the success of the Programme, given achieve economies of scale. The Phase 2 the extraordinary constraints under which it Expansion Strand should focus on the has operated. Nonetheless, several chal- strategic roll-out of the NSP to ensure lenges can be identified in terms of policy nation-wide coverage of the NSP, but with a EXECUTIVE SUMMARY formulation, implementation and monitor- bias towards integrating vulnerable coming and evaluation arising from problems in munities.

3 Recommendation 4 National level programme NSP Phase 2 needs to embrace a ‘whole management and delivery government approach’ both in order to gain greater political legitimacy in the eyes This section of the report focusses on the of political elites, and to coordinate management and coordination of the NSP at national development planning and pro- the centre of the Afghan political system gramming more effectively to gain focussing on the work of national level coor- economies of scale and to avoid waste and dination committees, the MRRD and the duplication. NSP OC. The analysis draws mainly on qualitative data derived from extensive national- level interviews and two workshops held with NSP stakeholders, including represen- Recommendation 5 tatives from: all the core ministries involved An International Comparisons and with the NSP; MRRD and NSP/OC staff; FPs Lessons Learnt Unit should be established and all the participating donors (Canadian in the MRRD to help support effective policy International Development Agency, learning both in Phase 2 of the NSP and the Department for International Development, Ministry’s other major development pro- European Union, US Agency for Inter- grammes. national Development, Japan International Cooperation Agency). The Unit could start by working through the institutional memory of the OC. It should ideally be linked to an independent National Level Coordination academic body, such as Kabul University, to It is observed that the NSP suffers from poor ensure objectivity. coordination at three different levels: donor coordination; inter-ministerial coordination; and large-scale development projects. Poor donor and inter-ministerial coordination Recommendation 6 has clearly presented the NSP with some Phase 2 needs to place a greater emphasis steering problems. While certain of these on increasing the direct economic benefits problems are self-inflicted (e.g. the inactive of the NSP through both incentivizing CDCs coordination committees and lack of and encouraging income-generating pro- strategic thinking across its key develop- grammes to meet its economic growth ment programmes), others are the product strategy. of its success in bidding for external funding, such as petty inter-ministerial jealousy resulting in the deliberate engineering of bottle-necks in the delivery Recommendation 7 process (e.g. financial disbursement NSP Phase 2 requires more effective donor processes). These problems can only be coordination. Donors should be aware of dealt with effectively through the establish- the consequences of action when they pick ment of a ‘whole government’ approach to and choose where their NSP funding goes. the management and delivery of Phase 2 of An integrated approach should be adopted ACKUthe NSP which will require the reform of by the donor community, both to ensure existing decision structures. that international funding helps to support national development priorities and to provide for better coverage. Recommendation 8 A new institutional structure is recommended for the national level coordination of the NSP. The dysfunctional External Review Committee and the Inter-ministerial Committee should be replaced with three new committees – an NSP Steering Committee, a donor Support Group and an Inter-ministerial Committee.

The NSP Steering Committee should meet every two months, it should be chaired by the Ministry with oversight of local gover- NSP AFGHANISTAN nance matters, and be comprised of the NSP Mid-term EVALUATION REPORT

4 Coordinator, the first and deputy Minister of Recommendation 10 the MRRD, the OC, the NSP Coordinator, We recommend the establishment of: a representatives from partnering ministries, rational NSP Phase 2 Operational Manual five CDC representatives from NSP regions, with a coherent set of programme objec- and a representative of the facilitating tives which can be measured over time, partners. and a simple set of key performance indicators for monitoring progress in relation The donor Support Group should meet to the achievement of these objectives. quarterly; it should be chaired by a presidential nominee, and be comprised of all the donor stakeholders, the First and Deputy Minister of the MRRD, and the NSP The Role of the NSP Oversight Coordinator. In addition to ensuring donor Consultant in programme accountability, the role of the group will be management and coordination to convene ‘action-oriented’ meetings with The evaluation of the role of the Oversight minutes in order to support the work of the Consultant in NSP programme management NSP more effectively. rests on an assessment of its ability to deliver on its core responsibilities. While the The Inter-ministerial Committee should NSP-OC has been unable to meet the targets meet quarterly and be chaired by a presi- set for December 2004 to August 2006, dential nominee and include representation established in its contract with the MRRD, from all partnering ministries. Its key role its achievements have nonetheless been will be to identify areas of duplication and remarkable. Since its involvement in waste, potential areas of joint working, and September 2003: NSP input into ministerial development plans and vice versa. Day to day manage- the NSP has encompassed 193 districts ment of the NSP would remain with the in all 34 provinces in Afghanistan; NSP/OC. the NSP has reached 22,500 rural communities covering 38,000 rural This institutional design would provide the settlements; architecture for a ‘whole government’ the NSP has benefited 10.5 million approach to the national coordination of people and established 10,000 CDCs; the NSP, foster greater inter-ministerial and 14,000 projects in 8,000 communities presidential collaboration, and provide for have been financed with Block more proactive donor support. A ‘whole Grant disbursements amounting to government’ approach should be integrated US $166.1 million and total Block Grant at all levels of programme delivery in appro- commitments of US $214.6 million; priate areas of programming. more than 4,000 sub-projects have been completed successfully.3

In addition, this survey identifies significant Recommendation 9 evidence of: We also recommend that the MRRD developsACKU a strategic plan to integrate the increased public faith in the system of NSP with other national programmes such government; as: the Water and Sanitation Programme improved community relations; (WATSAN); emergency employment improved state-civil society relations; (NEEPRA), mostly for labour-intensive road and building; the Microfinance Programme the empowerment of CDCs. (MISFA); the Emergency Response Programme (in Badghis, Bamyan, Herat, In addition, the OC has provided informal Kabul, Kundoz, Nangarhar, Paktia, and ‘on the job’ training, with an estimated total 3 See NSP OC (2006), Paktika), and, in particular, NABDP. It is of 50,000 person training days for MRRD Analysis of the Experiences and crucial to adopt a strategic approach to (central, regional and provincial), OC and Lessons Learned in Program large-scale development programming to FP staff and formal training with approxi- Implementation, GTZ-IS, ensure that a joined-up approach is taken mately 9,000 person days for the same Kabul, March 2006, pp. 3–5. that avoids duplication and waste, and target groups. Information and awareness meets broader national development goals. campaigns are provided by the Public Communications Unit (PCU) to underpin the training activities. EXECUTIVE SUMMARY

5 It is therefore unsurprising that the overall objectives; b) consistent performance indi- performance of the OC was evaluated as cators could be identified and effective ‘highly satisfactory’ by the World Bank monitoring systems established; c) Supervisory Mission of October/November coherent and consistent community 2006. This evaluation concurs with the profiles completed; d) a capacity develop- general tenor of this assessment. It identi- ment strategy for MRRD staff could be fies four major obstacles to effective developed; e) a human resource manage- delivery. First, the targets for 2004–6 were ment strategy could be devised for NSP OC not developed with a rational understand- staff; f) a rational NSP/OC exit strategy ing of how much time community mobiliza- devised; and g) a logical framework for tion and sub-project implementation takes. implementation completed. Secondly, several bottle-necks emerged in the process of programme implementation, All of these areas of ‘rational’ programme which have undermined the ability of the management are now being attended to, OC to meet targets. Prolonged delays but this does mean that much of the institu- occurred in: the procurement process for tion-building and the capacity development securing critical goods; the disbursement work that needed to be completed to allow process due to the absence of Block Grant for a hand-over to the MRRD in July 2006 is funds, and the inefficient transfer of funds in the process of completion. from Da Afghanistan Bank to CDC bank accounts. Thirdly, long delays have also occurred in the approval of extension Recommendation 11 contracts for existing FPs and the contract- While we recognize that excellent work is ing of additional FPs. Fourthly, it is also being conducted in these areas, the OC evident from our survey that there has been needs to complete its work at the strategic very little ‘political’ help forthcoming from level with regard to the completion of its: the MRRD or the donor community to help human resources strategy; change man- the NSP/OC deal with these bottle-necks in agement strategy; logical framework to the disbursement process. guide programme management around the achievement of milestones; needs However, our evaluation does identify some assessment for MRRD staff; capacity devel- shortcomings in relation to the OC’s role in opment strategy with linkages into the capacity development and programme man- broader process of civil service reform in agement and enhancement which are Afghanistan; a quality assurance strategy largely explained by the need to negotiate to ensure sustainable programming; and a significant programme constraints. Indeed, final NSP/OC exit strategy. it is argued that from the outset it was impossible for the OC to adopt a ‘rational’ approach to programme management for at least 3 main reasons: the obligation to The central institutional venue deliver on output-driven objectives has for operational delivery meant that they had to hit the ground There is currently significant debate within running to establish the delivery system for the MRRD and the NSP/OC over the most the rapid creation of CDCs and the dis- ACKUsuitable institutional venue for the delivery bursement of Block Grants; the absence of of the NSP in Phase 2 once the MRRD has clear programme objectives has meant that taken over the management of the they have always been engaged in institu- Programme. Three options have been tional ‘catch-up’ in relation to new priority debated: full integration; re-tender for a settings identified by the MRRD and donors; new OC; or, create a ‘not for profit’ semi- and the lack of a settled understanding of autonomous organization as a special the role of the OC by the MRRD and the project under the Ministry. The third option donors has meant that they have had to is being proposed by the MRRD as it shift human and institutional resources to provides the Ministry with the ability to support non-core NSP activities in response secure the services of high quality, experi- to changing political expectations (e.g. the enced staff in the field of rural community Management Information System). development who demand high salaries, while simultaneously developing the Hence, the OC was not provided with the capacity of national staff. However, we time to initiate a phasing-in strategy during believe that these aspirations can be met which: a) a rational Operational Manual through a fourth option; the creation of an NSP AFGHANISTAN could be finalized with clear programme executive agency for the operational Mid-term EVALUATION REPORT delivery of the NSP.

6 We recommend the creation of an Executive Sub-national coordination agency, a model of service delivery currently and operational delivery of the NSP deployed in most OECD member states and pioneered in the UK context in the late This section of the report focusses on the 1980s. The key features of an executive role of two further groups of stakeholders in agency fit with the MRRD’s institutional and the coordination and operational delivery of human resource needs: the NSP – sub-national governments, Provincial OCs and their teams and facilitat- 1. An executive agency is semi-detached ing partners. from its parent department (MRRD), with its own budget, freedom from some aspects of departmental regulation The role of the provincial MRRD (particularly in relation to recruitment), According to the MRRD respondents and with the organization under the the provincial governors, the NSP has signif- direction of a chief executive and other icantly improved the relationship between unit managers often recruited through the participating communities and the gov- open competition. ernment, in addition to creating stronger intra- and inter-community relations, to the 2. Executive agencies are accountable for extent that cases of conflict management the performance of specific operational have emerged. Furthermore, there is tasks as a corporate unit, including evidence of community empowerment. output-focussed performance targets Government officers at the senior level set by the parent department (in this draw upon development experience from case the MRRD), and the personal the NSP and within the wider national policy accountability of the chief executive framework. Furthermore, there were for meeting performance targets. several instances of institutional cooperation and some evidence of institutional 3. Executive agencies are established learning in practice. However, general through a Framework Document capacity levels are poor. The following sig- issued by the minister of the parent nificant deficiencies and threats also department (MRRD). Although the emerged from the analysis, which in turn Framework Document is an official prompt some recommendations: document, it is not a law. Hence agencies are not legally distinct from The cap on the budget allocation the departments that supervise them, (‘regardless of the number of real and of course all of the employees beneficiaries’) has caused significant are public servants, even though the distress within the Programme and managerial élan is often recruited risks causing rivalry and grievance. from outside the public sector. There is considerable frustration with delays in the transference of funds from It should be noted, however, that this the OC to the communities, which proposal is geared towards meeting the par- needs to be continuously reviewed. ticular needs of the MRRD for a form of While the official complaints organizationACKU that will allow it to retain spe- procedure was used, the approach to cialist staff on internationally competitive its implementation varies considerably, salaries to deliver the NSP. This is not to say to the extent that it risks disappearing that executive agencies are not without in some provinces; this is especially their problems – lines of accountability can worrying considering the natural become blurred, and separating policy from barriers to establishing transparency administration can lead to the emergence of and accountability in the context implementation gaps. of a war-ravaged State. There is a need to reconcile conflicting models of governance, both at the Recommendation 12 community and programme design We recommend the creation of an level. executive agency as a new institutional In recognizing the values of fair venue for the delivery of the NSP; a model representation, inclusion and legitimate of operational service delivery currently authority, the role of women in the deployed in most OECD member states (see decision-making processes needs Section 7 for more detail). to be advanced to ensure that their EXECUTIVE SUMMARY development needs are protected.

7 Greater efficiency and effectiveness the role. In the meantime there is an urgent would be gained by improving need to build DRRD management and oper- cooperation between government ational delivery capacity at the provincial departments via inter-ministerial level and to extend it down to the district coordination of development projects. level through a phasing strategy. Until then Operational and human resources are the continued presence of an OC-type limited and unevenly distributed. organization would be prudent to insulate Institutional learning and monitoring the NSP against political pressure and cor- and evaluation also proved uneven. ruption, and to ensure independent quality NSP training was equally patchy in its control and monitoring and reporting to nature and style. donors.

Provincial MRRD staff are optimistic that CDCs will become ‘the government at the district level’. Although the provincial Recommendation 14 MRRDs are confident that a ‘whole govern- The cap on budget allocation (‘regardless ment’ approach to the NSP involving indica- of the number of real beneficiaries’) is tive ministries can be achieved, evidence causing significant distress within the from some FPs, the OC, some of the CDCs, Programme and risks precipitating and national level research would suggest conflict. The problem of budget caps based otherwise. For example, projects have been on poor population surveys needs to be delayed because of inter-ministerial looked at and acted upon by central MRRD arguments over whether the NSP should be as a matter of urgency. building a school, or initiating an agricultural project. Moreover, the validity of the NSP itself is continually questioned by other provincial level ministries. This problem Recommendation 15 provides further evidence to support the While the official CDC complaints pro- recommendations outlined above for a cedure is used, the approach to its imple- ‘whole government’ approach to the NSP, mentation varies considerably, to the with full and active presidential support. extent that it risks disappearing in some provinces. This is especially worrying con- While the provincial level MRRD acknowl- sidering the natural barriers to establishing edges that it does not have the capacity to transparency and accountability in the directly implement the NSP, its capacity to context of a war-ravaged state. The com- monitor progress is also questionable given plaints procedure therefore needs to be acute staff shortages, the high number of standardized and entrenched. projects, and its limited understanding of project management and programming on the ground. Recommendation 16 There is a need to reconcile conflicting Recommendation 13 models of governance, both at the A strategic plan needs to be devised by the ACKUcommunity and programme design level. MRRD in order for the provincial level Similarly, the question of sustainability administration to ultimately assume a (CDCs and projects) should also be long-term NSP delivery role. This must addressed at both levels. involve a significant capacity development dimen-sion. Provincial DRRD staff will need to play a greater role in NSP quality control, enhancement and disbursement Recommendation 17 processes by the end of the Programme. Greater efficiency and effectiveness would be gained by improving cooperation However, due to the absence of a culture of between government departments at the sub-national government in modern provincial and district levels, with a focus Afghanistan, it is crucial that the decentral- on coordination. As a minimum require- ization of operational delivery functions to ment, it is important for government DRRD provincial and district officers is departments to have accurate information carefully phased in. Indeed, it should only concerning the responsibilities and opera- occur when it is clearly demonstrable that tional tasks of their counterparts to avoid NSP AFGHANISTAN DRRD officers have the capacity to assume confusion or jealousy. Mid-term EVALUATION REPORT

8 Recommendation 18 Recommendation 24 Sufficient operational and human The cap on budget allocation (‘regardless resources need to be provided by the MRRD of the number of real beneficiaries’) is in the field in order to maintain levels of causing significant distress within the Pro- community confidence in government. gramme and risks precipitating conflict. The problem of budget caps based on poor population surveys needs to be looked at and acted upon by provincial OCs and Recommendation 19 teams as a matter of urgency. Connected to Processes of institutional learning need to this, in overcoming project budget short- be standardized and monitored. falls, further action is required to form links to other international donor programmes.

Recommendation 20 The nature and style of training demands The role of the Facilitating Partners consistency and effectiveness, with special The role of the FPs has been crucial in the emphasis on improving the provision of social mobilization and capacity develop- technical skills training. ment of CDCs, and will need to continue for the short- to mid-term due to limited MRRD capacity at the district and community levels. All the FPs have serious doubts The role of the provincial whether the CDCs will be able to function Oversight Consultant without further capacity development and According to respondents, the NSP has sig- direct external support. The future role of nificantly improved the relationship the FPs rests on whether the NSP remains between the participating communities and purely a development programme or the government, in addition to creating whether the governance component of the stronger intra- and inter-community programme assumes a greater role in NSP relations. However, we recommend: Phase 2. If the former applies, then their engagement will be concluded at the end of the project, but if the governance Recommendation 21 dimension is emphasized they will: a) need The capacity development of the DRRDs by to undertake further training to prepare the the OCs needs to be made relevant to the CDCs for taking on such a governance role; implementation environment and the and b) need to be funded to maintain rationale of the NSP in order to avoid insti- contact with the CDCs over a period of time tutional dependency while ensuring the to organize re-elections and complete the Programme advances. further training of the newly elected members. We would encourage the latter, in which CDCs are granted a constitutional role with statutory responsibilities at the Recommendation 22 village level. By implication this would The levelACKU of skills and capacities of involve the extension of the public adminis- community members required by the trative system from the district to the CDC Programme to reach its targets needs to level through the establishment of an elite reflect the actual skills and capacities of of CDSOs. The role of the CDSO would be the community members. The advance- to assume the role of FPs and provide ment of targets would demand training to technical support to the CDC in all of its address the gaps and weaknesses in these core competences. areas, as identified by the OC in consultation with each CDC, DRRD and FP. Recommendation 25 Processes of lesson-learning across FPs should be improved, particularly in areas Recommendation 23 where certain FPs possess significant As a particular concern within the recom- expertise e.g. UN-HABITAT and economic mendation above, the skills and capacities development activity or gender-oriented of women CDC members need to be development programming or BRAC and improved towards ensuring gender-equal working in areas with security problems. EXECUTIVE SUMMARY participation and decision-making at the community level.

9 Recommendation 26 Recommendation 29 A community-based programme requires a The Operational Manual should be changed high degree of trust between the communi- as little as practicable; this would ease the ties, the FPs and the government – this is pressure on the national OC and allow all easier to achieve if the FPs have previous other stakeholders time to consolidate rural development experience in practice.4 Afghanistan. FPs therefore need to be carefully selected; a criteria is suggested below. A national NGO with prior engagement in rural development and a profes- Recommendation 30 sional administration and monitoring Some of the administrative forms that capacity is the ideal choice as they don’t require completion by the CDC are too carry overhead costs for expatriate staff, complex for barely literate people to establishing new offices or costly lines of complete. There needs to be a balance communication, and they do have a tested between transparency and expediency, system for community development that particularly for the CDCs. This is especially can be further improved. In second place the case for accounting and procurement would be international FPs with consider- forms and the sub-project proposal comple- able experience working in Afghanistan, a tion form. A failure to adopt a more majority of Afghan staff at all levels, offices realistic approach to capacity develop- and experience of working in different parts ment and community empowerment will of the country with rural development continue to ensure that FPs remain projects. These two categories of FPs are ‘Implementing Partners’. also better prepared to handle and mitigate security risks and have the necessary degree of trust within the communities to evoke community protection. The least ‘cost Recommendation 31 effective’ FPs would be those who are new NABDP and NSP thinking needs to be har- to Afghanistan, overly reliant on expatriate monized in order to join-up Provincial- staff that has a tremendous challenge to District-CDC coordination of development gain the trust of communities and govern- programming to avoid waste and duplica- ment. tion.

Recommendation 27 For some FPs the constant comparison to others working in less difficult areas is dis- The role of Community Development heartening, and in some circumstances Councils in programme management has led to a feeling of a lack of apprecia- and operational delivery tion. Extra support and allowances should be given to FPs working in problematic The following observations about the role of areas, particularly in terms of a more CDCs in the NSP are drawn from two flexible timetable and a reaffirmation of ACKUsources: a community power survey and a the generally good work they are doing in household survey. The community power such trying circumstances. survey was conducted with the principal aim of assessing the extent to which CDCs had been able to assume the two key roles assigned to them by the Programme: repre- Recommendation 28 sentative governance and community devel- The definition of ‘project completion’ opment. In practical terms this involved should be reviewed in consultation with assessing their capacity to function inde- FPs in order to incorporate an apprecia- pendently as a democratic leadership of tion of the intangible outcomes of the NSP their communities and their ability to select, 4 This recommendation has (e.g. community empowerment, ability to plan and manage development projects. been adopted post publication maintain facilities, etc). The household survey was designed both to of the PRDU’s Inception Report, assess the impact of the NSP in respect of its November 2005. goal and objectives, and to provide evidence of progress in developing inclusive community governance as a means of NSP AFGHANISTAN empowering communities to improve their Mid-term EVALUATION REPORT

10 lives, as well as detecting changes in public We therefore suggest a broad range of rec- perceptions of government. ommendations for CDCs aimed at improving project delivery through simplifi- In the absence of baseline data, community cation of bureaucratic processes, and leaders and householders in matched com- enhancing gender balanced institution- munities not participating in the NSP were building and developing capacity at the local interviewed with a view to corroborating level through processes of consolidation. the retrospective accounts of the CDC of governance before the NSP, and in order to distinguish between general post-war Simplification trends and changes directly induced by the Programme. It is envisaged that this research strategy will continue to be useful Recommendation 32 for the NSP until adequate baseline data is The Disbursement system is too onerous generated by the Programme through the and should be made in one instalment.5 compilation of enhanced community profiles and statistical records.

It is observed that Programme objectives Recommendation 33 should be re-focussed on the consolidation While the fund transfer mechanism system of the CDCs to ensure the sustainability of has improved through the delegation of the Programme, and that the OC should approval to the Provincial OC, and by seek to simplify unnecessarily complex reducing the number of instalments, we bureaucratic disbursement processes. In still believe that much could still be done to particular, further strategies need to be speed up the approval process and dis- developed to enhance the participation of bursement process through, for example: a women, both in community governance less bureaucratic CDC and project formu- and in project implementation, and the lation processes; allowing villagers to inclusion of the poorest of the poor and establish a bank account where the money disadvantaged as beneficiaries. It is further might be deposited, rather than having to observed that the NSP must be viewed as a bring the money to the village and, not long-term process; the NSP is a radical least, by giving the villagers a fixed date programme in the context of Afghanistan when the funding will be available. and it is unrealistic to expect lasting change within a short time frame. For example, female participation is highly problematic in the eastern region, and Nangarhar in partic- Consolidation ular. The east is a very conservative area and The sustainability and long-term success of FPs and the OC acknowledges that an the NSP can only be guaranteed by the increase in female participation will only development and consolidation of the occur gradually, a point certainly borne out capacity of the CDC. by this research. Nonetheless, NSP communities have far more tools than non-NSP The idea that capacity is essentially communitiesACKU for envisaging problems, concerned with the ability of people to linking priorities and planning. NSP com- function effectively to influence the condi- munities are therefore less reactive and tions of their communities, and ‘implies a more proactive, and have a significantly long-term investment in people and their more favourable opinion of the govern- organizations’, has long been recognized. ment. This is underpinned by optimism for (Eade, 1997:1–3). the future that non-NSP communities do not share. The non-NSP communities have a However, although capacity-building may strong distrust for government and little be concerned fundamentally with investing faith in its ability to address their problems. in the human capabilities of a community or 5 This recommendation has Indeed, there are many misplaced percep- organization, that development also been adopted post-publication tions about the government, and requires the advancement of necessary of the PRDU’s Inception Report, Afghanistan in general, because there has resources and conditions. Failure to grasp November 2005. not been any formal contact with govern- that the capacity, or power, to act effectively mental organizations to clarify the facts. As is conditioned by these circumstances as one villager put it, in a non-NSP community, well as personal knowledge and ability, has ‘the government has done nothing for us’. probably been at the root of many difficul- EXECUTIVE SUMMARY ties with capacity-building programmes,

11 where donors have seen the need to Recommendation 35 develop institutional and personal capacity In order to ensure the long-term survival of through “training”, while recipients have CDCs, the NSP process needs to be incen- been focussed on accessing financial tivized. We recommend the use of ‘top-up’ resources. In the field of community devel- grants and ‘matching funds’ to reward opment, promoting the ability of the poor CDC initiatives on NSP priority areas such to take control of resources, access markets as gender based and alternative livelihood and information, and participate in programming. decision-making, or empowerment, is also now widely considered as an important component of capacity-building. Recommendation 36 It is probably for this reason that the term Where appropriate, certain projects should capacity development is now preferred, have a component which should specifi- because it indicates a more holistic cally benefit the poorest of the poor and approach which encompasses all three encourage pro-poor growth. In the future aspects of capacity associated with partici- there will need to be more emphasis on patory development practice: human poverty reduction initiatives that focus on ability, material resources and power livelihoods rather than physical infrastruc- (Whyte, 2004:19). ture. Our research findings suggest that there is a desire to consolidate community In Phase 2 the NSP needs to ensure that the gains made through the NSP with related CDC’s capacity to function in each of these initiatives for employment, income genera- aspects is consolidated and developed by tion and further skills training. However, creating favourable institutional, social and there needs to be a careful balance between economic conditions, as well as opportuni- institution-building objectives and the ties for further skills development. The field establishment of programmes that have a research also clearly indicates that the genuine impact on pro-poor growth. precise combination of strategies required Indeed, in the medium term pro-poor after the completion of Phase 1 will vary growth programmes should only be rolled from one community to another, depending out on a strategic basis in areas where CDCs on their basic level of development and have become socially embedded and are local socio-economic conditions. The capable of acting benevolently. following recommendations are by no means exhaustive.

Recommendation 37 Recommendation 34 Continued support should be given to A greater focus should be placed on women-only CDCs. The gradualist effective social mobilization, capacity approach to more significant women par- development and institution-building. This ticipation within the NSP process should is especially relevant in CDCs where the vast also continue, and where possible women- majority of people are illiterate. Again, a only priorities should be addressed as a failure to adopt a more realistic perspective ACKUpriority. A separate NSP fund for projects will mean that the FPs will continue to be targeting women and children should be ‘Implementing Partners’, placing the long- created and bids encouraged, but this term sustainability of CDCs at risk. A twin needs to be accompanied by the strength- track process of consolidation and ening of women’s capacities within the expansion should be devised. A Phase 2 CDC. These findings support the view that Consolidation Strand should be aimed at separate women’s groups with separate CDCs who have successfully completed sub- project budgets are necessary in the short- projects. An action zone approach should term to develop women’s capacity. At the be deployed where appropriate within this same time this should not be used as a strand whereby CDCs sharing common CDP mechanism for institutionalizing their goals should be encouraged to engage in exclusion from decision-making in the joint programming to meet community pri- general CDC. orities and achieve economies of scale. The Phase 2 Expansion Strand should focus on the strategic roll-out of the NSP to ensure nation-wide coverage of the NSP, but with a NSP AFGHANISTAN bias towards integrating vulnerable commu- Mid-term EVALUATION REPORT nities.

12 Recommendation 38 Recommendation 41 There is significant concern about the long- CDC members have benefited from term sustainability of CDCs once NSP ‘exposure visits’ to other local CDCs. In the projects have been completed. It is spirit of a national programme advocating therefore recommended that CDCs should solidarity, provision should be made for assume a broader range of responsibilities regional or national ‘exposure visits’ to with community development planning enable lessons to be learned and relation- and programming to provide them with an ships to be formed – both of which would ongoing role in community governance. directly contribute to state building. This should be introduced through a phasing process linked to the attainment of certain levels of capacity. The new responsibilities could include: resolving internal Recommendation 42 community disputes (e.g. land, water At the community level, training in clerical rights); bargaining with traders; sharing skills is good (to the literate), but training lending risk; bargaining for better share in artisan trades is patchy and inadequate cropping arrangements; bargaining (to the illiterate). Skills acquired should be between CDCs and developing district plans rendered portable by issuance of and projects, thus achieving economies of commonly-recognized certificates for scale; and the registration of births, management, clerical and artisan skills. marriages and deaths. A more ambitious and longer term task, which is nonetheless worthy of consideration, is to use CDCs to collect local taxes on the basis that they would retain the large part of the levy for The enhancement of community development activities, while NSP engineering projects transferring the remaining part to government. We also undertook an evaluation of the quality of NSP engineering projects. It was observed that standards of project design and construction varied to extremes, Lesson-learning and although most were appropriate and capacity development adequate. At one end of the scale one could See also recommendations 22 and 23 above. cite the impressive micro-hydropower project at the village of Salakhail, Skakardar District (Kabul Province) where relevance, Recommendation 39 specification, design, construction and sus- In relation to engineering projects there is tainability were all covered very well, a need for a formalized system of appoint- resulting in an excellent project all round. At ment for ‘site managers’ by CDCs. Focussed the other end of the scale one could training is required for those appointed. mention the school at Markaz-e- CDCs should provide overall project Dawlatabad, Dawlatabad District (Balkh direction but a separate project manage- Province) where relevance was inadequate, ment teamACKU should be appointed. CDC specification and design were sub-optimal members should remain unpaid (to show (in terms of school size and earthquake mit- commitment to the community) but the igation), and construction standards were project management team should be paid sometimes poor. allowances. There appear to be satisfactory processes for checking engineering designs, particularly for infrastructure where failure could Recommendation 40 lead to human casualties. [Particular The recent CDC jirga was very well received emphasis needs to be given to ensure that by rural communities and helped to for structures, adequate provision is made convince the cynics that the NSP was a for extreme snow and wind loads, and for positive step forward. Regional and earthquakes.] However, there was no clear national CDC jirgas should be arranged on chain to ensure that the design (as checked) a regular basis to reinforce the govern- was that which was actually implemented. ment’s position, consolidate the percep- Although difficult to firmly correlate, it did tions of existing CDC members and demon- seem that there were instances where EXECUTIVE SUMMARY strate the government’s support for newly adequate designs were compromised by created CDCs.

13 poor construction – indeed there was at being taken in respect of materials and least one case where it appeared that steel standards that might compromise the reinforcement in a retaining wall had been integrity of the structures concerned. omitted to save money. Auditable records of these inspections should be maintained. It is recognized that In general, there was also a good under- there appears to be a shortage of suitably standing of the need for an operations and qualified engineers in Afghanistan – unsur- maintenance plan; however, there were prising given the scale of reconstruction and mixed responses on how this should be development. Therefore, those projects done – not always was someone nominated where non-adherence to design require- and trained for responsibility, and rarely was ments could lead to catastrophic failure there a contingency or succession plan in should receive the highest priorities for case of incapacity or unavailability of anyone inspections. nominated. Ongoing costs were a big factor (especially for projects that would perpetu- ally rely on an imported fuel supply) and, whereas most CDCs had simple Recommendation 46 physical/financial plans, their biggest CDCs should be encouraged to identify concern was whether the community clearly who is responsible for: savings box would remain adequately filled in the longer-term. A range of recommenda- Project selection and subsequent tions follow for the enhancement of engi- direction (normally the whole CDC); neering projects. Project management (normally a bespoke trained team within the CDC); Site management (normally an Recommendation 43 adequately trained individual The need for mitigation measures against (plus reserve) who is probably natural hazards (particularly earth- not in the CDC). quakes, landslides and floods) should be given a higher profile. General requirements for all projects (whether by avoidance or mitigation of risk) should be Recommendation 47 highlighted at the specification stage, and CDC members should not receive remuner- all infrastructure projects should be vetted ation for their activities. However, CDC for adequate compliance by an appropri- members or local residents working in ately qualified engineer. project management or site management should be rewarded – so if they are also CDC members, it should be noted that it is for their enablement roles, not their Recommendation 44 empowerment roles, for which they are A Block Grant fund needs to be made being compensated. available to the NSP to mitigate the affects of disasters and terrorist attacks that damage/destroy NSP initiatives. The avail- ACKU ability of such a fund would be extremely Recommendation 48 useful in building social solidarity in times A major initiative should be established to of crisis. A proposal should be made to NSP encourage the introduction of formal donors to set up a Disaster Mitigation Fund training in all the key construction skills, for these purposes. underpinned by the award of appropriate qualifications. The training should be village-based with instructors visiting at regular intervals. Formal instruction need Recommendation 45 not be very long (and could be conducted A more tangible link should be established for groups of villages in collective sessions) between those who design projects and but should be substantial enough to allow those who construct them. There should be for follow-up on-the-job training. For each a mandatory requirement for an engineer skill set, a required standard should be from the designer’s organization to visit defined and a method of testing the projects under construction at appropriate standard required should be established. times, to ensure that respective designs are Initially, this standard should be applied NSP AFGHANISTAN being followed and that no shortcuts are nationally by MRRD and its agencies to all Mid-term EVALUATION REPORT

14 those working within NSP. In time, this carefully monitored and contingency plans should be integrated into agreed national for alternative disbursement mechanisms construction training and testing standards. put into place. While it is important to build An important element of the initiative in the capacity of Da Afghanistan Bank (DAB) order to promote portability of acquired to play a disbursement role, efficient dis- skills would be the award (and registration) bursement processes are axiomatic to the of appropriate certificates (suitably operational delivery of the NSP. As we noted designed to militate against fraudulent use). in Section 5, improvements have also been A similar initiative is needed for training and made with regard to the introduction of a qualifying site managers, though in this case streamlined disbursement process to deal a longer period of formal instruction will be with the problems emanating from the required (say two weeks), and there would initial policy of requiring three instalments be considerable reliance on the individual’s per sub-project. past experience when being formally assessed for the appropriate qualification. Our surveys picked up on very few instances of corruption committed by members of CDCs. Indeed, the evidence from our research is that where you have effective CDCs corruption does not occur. Indeed, NSP Financial Operations the NSP provides an outstanding opportunity to learn about how and why corruption Four main obstacles to effective and takes place, and what mechanisms lead to efficient NSP financial management have or prevent corruption. It is therefore been identified in our survey: disburse- observed that corruption can be minimized ment, procurement, liquidity and limited through trust management, capacity devel- evidence of corruption. The NSP-OC’s opment, and social audit. There is evidence, failure to meet its roll-out targets for however, that the capacity of CDCs to December 2004 to August 2006 was partly provide effective reporting to the attributable to prolonged delays that community and to the NSP on project occurred in: the procurement process for progress and the use of funds could be securing critical goods (the responsibility of improved. the MRRD);6 in the disbursement process due to the absence of Block Grant funds (the responsibility of the WB); and in the Recommendation 49 inefficient transfer of funds from DAB to In accordance with the recommendations CDC bank accounts. A further bottle-neck outlined by the OC7 – improvement needs emerged in December 2005 due to the lack to be made to operating processes at the of liquidity in the Block Grant fund. Block national level in relation to the processing Grant disbursements started to slow down of FP contracts, the replenishment of Block in December 2005, reaching a complete halt Grant funds and the payment of invoices. in February 2006. The absence of Block This would be best managed through one Grant funds for disbursement further office under the auspices of the NSP. undermined the ability of the OC to meet its roll-outACKU targets. It is also noteworthy that 6 For example, 40 generators payments to FPs are also seriously behind requested by FPs in October schedule – 93 per cent of invoices received Recommendation 50 2004 were not delivered from FPs for services rendered in the A further capacity development deficit can until December 2005, and second half of 2005 are yet to be reimbursed be identified in relation to the manage- 20 four-wheel drive vehicles (the responsibility of the MRRD). ment of NSP finances. A strategic plan were requested in January 2005 needs to be devised by the MRRD in order by the PO OC but were not It is evident from our survey that there has for its finance team to assume the role of ready for use until June 2005. been very little ‘political’ help forthcoming the OC in the disbursement process. This from the MRRD or the donor community to must involve a significant capacity devel- 7 NSP/OC (2006), help the NSP/OC deal with these high level opment dimension. MRRD staff will need to Analysis of Experiences and bottle-necks in the disbursement and other play a greater role in NSP auditing, dis- Lessons Learned in Program financial processes. It is therefore unsurpris- bursement and other financial processes Implementation, 2003–6, Kabul. ing that targets have not been met. by the end of the Programme. However, the OC has been able to develop a Memorandum of Understanding (MoU) from DAB to transfer grants to the provinces EXECUTIVE SUMMARY within two weeks. The situation needs to be

15 Recommendation 51 Recommendation 56 Further training needs to be provided to Federated structures are created at the CDCs on auditing, transparency and district level in order for communities to financial reporting processes. interface with government agencies and development programmes.

Recommendation 52 The NSP provides an outstanding opportu- Recommendation 57 nity to learn about how and why corrup- Community Development Officers are tion takes place and what mechanisms recruited and trained to support and lead to or prevent corruption. Research promote human capital development should be supported by the World Bank in activities in rural development. this area.

Recommendation 58 We therefore recommend that where Community Development Councils appropriate certain projects should have a and future governance in Afghanistan component which should specifically benefit the poorest of the poor and We propose a constitutional role with encourage pro-poor growth. In the future, statutory responsibilities for CDCs at the due to donor mandates, it is likely that village level,8 and the extension of the more emphasis will need to be placed on public administrative system from the poverty reduction initiatives that focus on district to the CDC level through the estab- livelihoods rather than physical infrastruc- lishment of an elite of CDSOs. The role of ture. Our research findings suggest that the CDSO will be to provide technical there is a desire to consolidate community support to the CDC in all of its core compe- gains made through the NSP, with related tences. The establishment of this techno- initiatives for employment, income genera- cratic elite, with attractive conditions of tion and further skills training. service, is central to the long-term sustainability of CDCs and should be a key component of the NSP’s consolidation strategy. This proposal will also require a Recommendation 59 long-term capacity development strategy The NSP should foster linkages between which should be integrated with broader sub-projects. For example, the provision of processes of civil service reform. electricity generators would be much more effective if the generators were to power It is therefore recommended that: mills, small manufacturing, or refriger- ated storage rather than focussing purely on the provision of light and the encour- Recommendation 53 agement of a consumer life style. CDCs be institutionalized into the system of ACKU governance.

Recommendation 54 CDC By-laws are extended to include cyclical elections.

Recommendation 55 CDCs are given statutory powers in relation to community development 8 See Recommendation 31. planning and programming in core programme areas (education, health, water, energy, sanitation and basic infra- NSP AFGHANISTAN structure). Mid-term EVALUATION REPORT

16 Linkages with the evaluation of other The poorest may not always benefit community-driven development from CDD projects. programmes The sub-project cycle is too short The findings of this evaluation and several to sustainably enhance community of its recommendations concur with the capacity where it is weak or does Independent Evaluation Group’s evaluation not exist. of the effectiveness of World Bank support for CDD. Please consider the following. More changes are needed to improve fiduciary and safeguard compliance in CDD projects. The strengths of community driven development interventions This evaluation lends further support to the Independent Evaluation Group’s recom- Borrower officials believe that a mendations of the need to ensure that: participatory approach can contribute to poverty alleviation. base-line surveys are conducted in CDD projects; CDD projects help to reduce the cost to government of delivering infrastructure. the costs and benefits of undertaking CDD interventions are systematically They have increased access to remote calculated; and communities to service-delivery infra-structure. CDD programmes are integrated into overall country assistance strategies. Capacity-enhancement efforts are likely to be more successful when a bank Indeed, the evaluation advances CDD project supports indigenously matured knowledge in all three respects. efforts or provides sustained, long-term support to communities beyond a sub-project cycle. Programme costs, expectations CDD projects have enhanced and impact government capacity to implement participatory interventions. In an ideal rational-type evaluation a programme should be strictly evaluated against the achievement of its aims and Weaknesses of community driven objectives. However, it is evident from this development interventions analysis of the obstacles to programme delivery that: a) a significant range of Much more success is achieved in obstacles have been confronted by the NSP CDD projects in relation to quantitative which have constrained its capacity to meet goals (such as the construction of ambitious targets; b) although some of infrastructure)ACKU than on qualitative these have been the product of the absence goals (such as capacity enhancement of strategic thinking, the vast majority are or quality of training). outside the control of the NSP/OC and its FPs, and are generally typical of post-war M&E systems do not allow systematic reconstruction development programming; assessment of the capacity-enhancing and c) despite these constraints significant impact of CDD interventions. It is often achievements have been made. This evalua- assumed that meeting the quantitative tion has found evidence of at least 11 sets of goals will automatically fulfil the benefits which have been derived from the qualitative goal; for example, holding NSP: a certain number of training courses is expected to enhance capacity. 1. increased public perceptions of national solidarity achieved through 9 See Sections 3, 4, 5 & 6. Communities need to bear an increased state-building – e.g. the creation of share of the burden for service delivery new institutional architecture at the infrastructure; is this sustainable in the central (NSP-OC, DAB), provincial long-run? (Provincial Office [PO], OC), and EXECUTIVE SUMMARY village (CDCs) levels;9

17 2. improved state-civil society relations impact, although a number of threats to the as a consequence of improvements sustainability of the positive gains were in national solidarity;10 identified.

3. greater awareness of the activities of This inclusive approach to evaluating NSP government as a consequence of the Programme costs and benefits reveals signif- work of the PCU;11 icant gains to the Afghan people in relation to institution-building (limited democratiza- 4. the empowerment of rural tion) and capacity development (mainly in communities through the skills development) and social solidarity at establishment of a new legitimate the national and community levels, and to a form of community governance;12 lesser degree at the provincial and district levels. Impressive benefits have also been 5. heightened perceptions of community derived economically by: creating livelihood solidarity achieved through processes opportunities and direct forms of economic of community governance;13 development through improved productive capacity and the provision of work in 6. delivery of governmental capacity relation to certain NSP projects; and the development (provincial and district provision of indirect forms of economic level MRRD, NSP/OC, PO OC, DAB development facilitated by increased and Ministry of Finance staff);14 economic activity arising from improved infrastructure, and savings derived from 7. delivery of FP capacity development lower costs of production. Important gains (training);15 in gender equality have also been achieved in certain regions. 8. delivery of community capacity development (training);16 These benefits justify the overhead costs of the Programme, particularly in years 1 and 2 9. direct forms of economic development of the Programme. Moreover, overhead through improved productive capacity costs should diminish dramatically as a con- and the provision of work in relation sequence of: a) lesson-learning from Phase to certain NSP projects;17 1; b) elimination of unnecessary bureaucracy through the simplification of delivery 10. indirect forms of economic systems; and c), the gradual development of development facilitated by: a new institutional venue for the delivery of a) increased economic activity arising the Programme. However, these achieve- from improved infrastructure, and ments will need to be consolidated in the 10 See Section 4. b) savings derived from lower costs ways suggested above in order to ensure of production;18 and the long-term future of what may be 11 See Section 2. deemed a development programme of out- 11. improvements in the quality of rural standing potential. 12 See Section 4. life.19 ACKU13 Ibid. As stated in the technical proposal for this 14 See Section 2. mid-term evaluation, it was premature to attempt to determine the impact of the 15 Training in relation to Programme either in terms of achieving its delivering aspects of the NSP. stated objectives (laying the foundations for See Sections 2 & 3. improved community level governance and poverty reduction), or in terms of the over- 16 See Section 4. arching aim of strengthening national solidarity. Nevertheless, as the evaluators 17 See Section 7.3. expected, it has been possible to identify the above qualitative trends that can be 18 Ibid. attributed with some confidence to the interaction of the Programme with the 19 Ibid. objective socio-economic conditions in the communities and these, if sustained, would be capable of delivering the intended NSP AFGHANISTAN impact. No evidence was found of negative Mid-term EVALUATION REPORT

18 Findings and Recommendations Programme Design 1 and Rationale

The NSP has provided Afghanistan 50 per cent of the annual government with the best chance it has had for budget to be distributed through real development in its modern history. programmes in one ministry. It is our responsibility to seize this (Minister, Islamic Republic of Afghanistan) opportunity and to make it work. (Minister, Islamic Republic of Afghanistan) NSP was the only programme that had any real impact so far. The best We are very happy with the NSP; aspect was the CDC which enabled sure there are problems that need looking communities to solve their own problems. at for the second phase, but there have (Deputy Governor) been some very significant achievements. (NSP donor stakeholder) They came together in happiness and sadness and talking with each other The NSP is an outstanding success. to solve problems. It is managed well, funds are delivered (Woman householder to the villages, money is disbursed in Shah Qadam CDC, Bamyan) effectively and good programme outputs are achieved. (NSP donor stakeholder) 1.1 Analysis The principles underpinning the NSP – participation, pro-poor poverty reduction It is self-evident that the Afghan communi- and government ownership – are the first ties, their government and the aid principles of development. The NSP community are facing a formidable task in deservesACKU our support because it is reconstructing Afghanistan. The basic needs the best chance that Afghanistan are great, and the developmental needs has of getting real development. include the immense task of recovering (NSP donor stakeholder) years of lost opportunities while responding to an ever-increasing level of expectations The rapid expansion of the NSP has been brought about by the country’s relative a success but the pace of implementation stability. At the same time reconstruction is creates inevitable problems. The capacity taking place at a time when there has been to deliver the NSP to 6,800 villages is a shift in the way aid to Afghanistan is being simply not there. More implementation considered, the attitude of ‘any help is problems will emerge…we need a more worthwhile’ is changing to recognizing that incremental approach. the future stability of the country relies on (OC representative) appropriate and sustainable systems of governance and economic recovery. In this The NSP is a success, no rational person context, the NSP represents the flagship would say otherwise, but it needs to post-war reconstruction initiative of the belong to the whole government and Islamic Republic of Afghanistan. It is a dis- not one ministry. It can’t be right for tinctive programme because of the

19 emphasis placed on deploying the rapid dis- placing the communities at the centre of the bursement of Block Grants to rural commu- rehabilitation process NSP potentially offers nities as a policy instrument for both the government and other development ‘bottom-up’ institution building, through agencies the opportunity to adapt their the creation of directly elected CDCs at the responses to the complex dynamics of long- village level, and pro-poor economic term recovery. This is a major shift from the growth. The Programme is also distinctive traditional tendency to rely on quick fixes in that it is implemented through the gov- through ‘top-down’ project-driven relief ernment and has nation-wide coverage. It is programmes with a misguided emphasis on designed both to help the rural communi- short-term indicators (for example, the ties rebuild their lives and their nation, and number of projects delivered, people to demonstrate that the Afghan govern- helped, expenditure targets met, etc.), and ment, with assistance, could develop the the habitual excuse of ‘context constraints’ inclusive governance structures required to and the ‘lack of resources’, that prevent gov- sustain a stable government. These are all ernments and agencies alike from harness- important qualities for empowering institu- ing longer-term developmental potential tions and sustaining development and building a stable and peaceful recovery. outcomes. The real challenge for post-war reconstruction is to develop local institutional capaci- Considering the transitional context in ties for providing assistance to recovery which the Programme was designed, the processes, in a manner that reinforces rationale behind supporting a government- rather than undermines the dynamic of led national programme (thus extending recovery at the local level. This is something the visibility and influence of central gov- that NSP has the potential to deliver. ernment in the provinces) is a commendable one. It is important to remind However, when it came to implementing ourselves that this occurred at the same the Programme, the NSP faced a combina- time when MRRD, with its limited resources tion of some common implementation and capacities, was rightly being re-oriented problems such as: 1) poor problem and to directing policy and implementing pro- context definition; 2) ambiguous and incon- grammes through partners in the non-gov- sistent objectives; 3) inadequate policy ernmental and private sector rather than design, particularly in terms of capacity implementing directly. The responsibilities development and sustainability; 4) certain of the Ministry include: the formulation of recalcitrant implementing actors; 5) lack of rural development policies, strategies and initial support from some affected commu- guidelines; the coordination and monitor- nities as well as some ministries; and finally ing of other implementing agencies working 6) unstable and uncertain socio-economic in rural development as well as mobilizing and security contexts in a number of the the resources for it. The employment of the provinces. Of course, some of these factors NSP/OC was particularly important for the played a greater role in impeding successful speedy implementation of the Programme, policy implementation than others. and in our opinion can be credited with Similarly, with the national coverage of the much of the achievements so far. Equally Programme and the sheer size of the enter- critical for the comprehensive progress of ACKUprise, unprecedented in the Afghan context, the Programme has been the contracting of it was inevitable that some projects would FPs, many of whom have had extensive be more successful than others and some experience in community mobilization and facilitating partners more efficient than the implementation of development pro- others. grammes. Nevertheless, the main tension between the The initial design of the NSP recognized that rationale of the NSP and its implementation in an operating environment of chronic is derived from the limited time-frame emergencies and media-led donor support, established for its implementation, which community participation is the key to the has had a major knock-on effect on the suc- sustainable and effective rehabilitation of cessful achievement of the original goal of the service sector. It reflects the view that the Programme. It is evident that what is local communities and institutions bear a fundamentally a development programme key responsibility for the rebuilding of their has been rolled-out with a relief mindset, own services and infrastructure, and are leading the MRRD to emphasize increased therefore the real owners of the overall coverage and rapid disbursement of Block FINDINGS AND process of post-war rehabilitation. By Grants to communities. This emphasis on RECOMMENDATIONS

20 disbursement may have been a rational These problems are reflected in the response to the political climate of the time constant changing of NSP objectives and key and have reflected the critical need to performance indicators in the Operational provide a visible governmental presence in Manual in response to new political priori- the provinces, districts and villages of ties.2 For example, NSP’s focus shifted from Afghanistan. It was a conscious political act local governance to rural infrastructure but of state building, seeking to build public the MRRD, NSP facilitating partners and the confidence in an infant government. Nor OC lacked the technical engineering was this relief mindset confined to the expertise needed to support communities.3 national level. Many of the people forming In order to ensure effective monitoring and CDCs were returning refugees, mostly from evaluation, it is now crucial to have a settled Pakistan and Iran, where their situation was understanding of programme objectives in helped by relief efforts. According to many order to achieve desired inputs. NSP FP stakeholders, understandably many people still have this relief mentality and At the same time new realities have have difficulty making the transition to iden- emerged that prompt the need for some tifying longer-term community develop- marginal adjustments to the programme ment priorities. However, from the outset design for Phase 2. These include: certain rudimentary components of programme design, formulation, implemen- the importance of a greater emphasis on tation and management were lost in the quality programming in order to ensure rush to delivery. For example, the NSP/OC sustainable programming – NSPs need was recruited after six months of operation to make development sense; and was expected to disburse Block Grants the implementation of NSP through one immediately. There was therefore no time ministry was a necessity in Phase 1 but for a phasing-in strategy during which: a) a now a ‘whole government approach’ rational Operational Manual could be and greater resource sharing is required finalized; b) consistent performance indica- in order to maintain stable government, tors could be identified and effective moni- build governmental capacity and toring systems established; c) coherent and to deliver on broader national consistent community profiles completed; development goals; d) an effective capacity development communities now have an expectation strategy for MRRD staff could be developed; of the development of NSP income and e) a rational NSP/OC exit strategy enhancing projects, but most projects devised. Moreover, many of the traditional are infrastructural that only provide for nuts and bolts of organizational manage- short-term employment opportunities ment, such as the development of a human and therefore provide a modest resources strategy and logical frameworks contribution to poverty reduction – to guide programme management, took a there needs to be a greater focus on back seat in the drive for CDC creation and livelihood enhancing projects in Phase 2 the rapid disbursement of Block Grants to (e.g. alternatives to poppy cultivation). support NSP projects. Understandably the NSP was formulated in a The NSPACKU was designed on the hoof in very short period of time (two to three response to political priorities and until months). In its formation, it benefited from recently was deficient with regard to its transferring community development policy 1 In our assessment, the World operational, monitoring, quality assurance from elsewhere. However, the short period Bank’s April 2005 Supervision and capacity development activities. While of time allowed for the design of the NSP Mission played an important role the NSP/OC has made concerted efforts meant that there simply was not enough in reinvigorating the process. over the past 6 months to work on these time to pay sufficient attention to investigat- deficiencies, at present the base-line field ing international exemplars of post-conflict 2 A number of FPs have data does not exist to conduct a ‘scientific transition, and therefore the international expressed concern over the evaluation’ of the achievements of the comparisons work that was conducted constant change of the OM. Programme (however significant they may focussed on convenient examples (e.g. be).1 Moreover, the political/security driven Cambodia, Indonesia). The international 3 See NSP/OC, ‘NSP 1: choice of first wave communities for dis- case study evidence suggests that a number Lessons Learned’, 2005. bursement led to the rapid roll-out of the of factors may act as constraints to success- Programme, an over reliance on expatriate ful programme learning in community expertise and the failure to engage in development planning and programming. SECTION 1: effective capacity development at the Some of these factors are evident in the NSP PROGRAMME DESIGN national and provincial levels. context, and need to be investigated further,

21 including: 1) limited search for successful Recommendation 3 and compatible exemplars, particularly in NSP Phase 2 should be a period of consoli- relation to capacity development of govern- dation rather than expansion. The aim of ment departments; 2) multiple goals rolling out the NSP to 6,800 communities in (declared and undeclared), increasing the Year 3, despite the considerable backlog of Programme’s complexity; 3) little or no Year 1 and 2 projects, is not tenable. There compatibility with existing policy systems; should be a greater focus on quality rather 4) resource constraints, including political, than quantity to allow for effective social bureaucratic, technological and economic mobilization and institution-building to resources; and 5) the initial cultural and ide- take root, and for projects to be sustained ological incompatibility between donor through high quality community develop- policy and the dominant value system ment planning. A twin track process of amongst MRRD employees. consolidation and expansion should be devised. A Phase 2 Consolidation Strand should be aimed at CDCs who have successfully completed sub projects. An action 1.2 Summary and recommendations zone approach should be deployed where for programme design and rationale appropriate within this strand whereby CDCs sharing common CDP goals should Overall, Phase 1 of the NSP has undoubtedly be encouraged to engage in joint program- been a success, given the difficult environ- ming to meet community priorities and ment in which it has operated. Indeed, only achieve economies of scale. The Phase 2 a small minority of our respondents ques- Expansion Strand should focus on the tioned the success of the Programme given strategic roll-out of the NSP to ensure the extraordinary constraints under which it nation-wide coverage of the NSP, but with a has operated. Nonetheless, several bias towards integrating vulnerable com- problems can be identified in terms of munities. policy formulation, implementation and monitoring and evaluation arising from problems in the process of programme formulation and inception, which have created Recommendation 4 operational obstacles that need to be sur- NSP Phase 2 needs to embrace a ‘whole mounted in Phase 2. government approach’ both in order to gain greater political legitimacy in the eyes of political elites, and to coordinate Recommendation 1 national development planning and pro- The political objectives of the NSP (e.g. the gramming more effectively to gain establishment of CDCs within the formal economies of scale and to avoid waste and system of local governance) need to be duplication. expressed more overtly within the Programme objectives.

Recommendation 5 ACKUAn International Comparisons and Recommendation 2 Lessons Learnt Unit should be established New ‘simplified’, ‘realizable’ and publicly in the MRRD to help support effective policy ‘knowable’ programme objectives and a learning both in Phase 2 of the NSP and the ‘simplified’ and ‘realizable’ set of perform- Ministry’s other major development pro- ance indicators need to be drawn for NSP grammes. Phase 2 which express the governance, capacity development and economic The Unit could start by working through the growth objectives of the NSP more explicitly institutional memory of the OC. It should so that they can be measured over time. ideally be linked to an independent academic body, such as Kabul University, to Monitoring systems should be simplified to ensure objectivity. focus on developing time series data around a simplified set of performance indicators. A coherent and consistent representative sample of community profiles drawn to common criteria needs to be completed for FINDINGS AND comparative and evaluative purposes. RECOMMENDATIONS

22 Recommendation 6 Phase 2 needs to place a greater emphasis on increasing the direct economic benefits of the NSP through both incentivizing CDCs and encouraging income-generating programmes to meet its economic growth strategy.

Recommendation 7 NSP Phase 2 requires more effective donor coordination. Donors should be aware of the consequences of action when they pick and choose where their NSP funding goes. An integrated approach should be adopted by the donor community, both to ensure that international funding helps to support national development priorities and to provide for better coverage.

ACKU

SECTION 1: PROGRAMME DESIGN

23 ACKU

FINDINGS AND RECOMMENDATIONS

24 Findings and Recommendations National Level 2 Programme Management and Coordination

This section of the report focusses on the The External Review Committee needs management and coordination of the NSP at to be more proactive; it should be a the centre of the Afghan political system, problem-solving committee but we are focussing on the work of national level coor- not asked to play this role. dination committees, the MRRD and the (NSP donor stakeholder) NSP OC. The analysis draws mainly on qualitative data derived from extensive national- We need to be organized; level interviews and two workshops held the present committee is a talking shop with NSP stakeholders, including represen- no more, no less. tatives from: all the core ministries involved (NSP donor stakeholder) with the NSP; MRRD and NSP/Oversight Consultant (OC) staff; Facilitating Partners We can be an important source of (FPs) and all the participating donors support for the MRRD especially in (Canadian International Development their battle with other ministries. Agency, Department for International (NSP donor stakeholder) Development, European Union, US Agency for International Development, Japan The donor community thus calls for an International Cooperation Agency). action oriented coordination committee aimed at providing support for the NSP both in its strategic thinking on broader development issues and in providing 2.1 National level political pressure to remove bottle necks at coordination committees different levels of the delivery system.

The NSPACKU at the national level is in theory The Inter-ministerial Committee includes coordinated through two committees – the the ministries of Finance, Public Works, External Review Committee and the Inter- Women’s Affairs, Public Health, Agricultural ministerial Committee. The External Review Affairs, Education, and Water and Energy. Committee is comprised of NSP donors, UN Once again it is mandated to meet every six agencies (UNAMIR, UNICEF, UNHCR) and months with the aim of ensuring that the the Ministry of Finance. It is mandated to NSP is linked into the work of the respective meet every three months. While the donor ministries. For example, the construction of community is unanimous in its support for a NSP school has to comply with the the NSP it is less flattering on the work of Ministry of Education’s own national plans the Committee: and building regulations, and Memor- andums of Understanding (MoUs) have The NSP needs to institutionalize been set up between the respective min- donors into the deliberative process. istries to achieve this. In practice, this At the moment we are simply not Committee functions in a very limited way. geared to support the NSP effectively. Indeed, three key ministries were not aware (NSP donor stakeholder) of its existence:

25 I can’t recall being involved in any As long as there is greater Inter-ministerial Committee meeting. inter-ministerial cooperation We’ve discussed the NSP in Cabinet the NSP will be of great importance but that’s as far as it goes. to the future of Afghanistan. (Minister, Islamic Republic of Afghanistan) (Minister, Islamic Republic of Afghanistan)

What Inter-ministerial Committee? This change in perception coincided with (Minister, Islamic Republic of Afghanistan) the London conference in February 2006.

We would like to be involved Our interviews also revealed that the NSP but have never been asked. suffers from poor coordination of its large- (Minister, Islamic Republic of Afghanistan) scale development projects. For example, there is insufficient integration of strategic Nor did they recognize the importance of thinking with regard to the relationship the NSP’s work: between the NSP and the National Area- based Development Programme (NABDP). We already have our own community Consideration should be given to providing structures; why do we need new ones? Oversight Teams that can look at NSP (at (Minister, Islamic Republic of Afghanistan) community level) and NABDP projects (at the provincial level), rather than each All the NSP does is complicate matters. programme having its own teams. This (Minister, Islamic Republic of Afghanistan) could yield both significant savings in time and money and a more comprehensive The NSP makes no effort to understanding of development needs, communicate with ministries working problems and their resolution. Under a in similar areas…this is leading to ‘whole government’ approach the same poor planning and waste. concept could be extended to include the (Minister, Islamic Republic of Afghanistan) ASP (Afghanistan Stabilization Programme under the auspices of the Ministers for the The NSP needs to recognize that Interior and Communications) which we need to be able to do our jobs; operates at district level. the MRRD gets all the money and we sit here twiddling our thumbs. Collaboration between the various pro- (Minister, Islamic Republic of Afghanistan) grammes has been minimal so far (even within the same offices in MRRD), but if However, ministerial perceptions of the NSP there were efforts towards developing differ markedly in accordance with the cooperation then the quality of the pro- Ministry’s involvement in the Programme. grammes will improve along with staff satis- There follows a selection of narratives from faction as well as increased efficiency. ministries involved with the NSP: Poor donor and inter-ministerial coordina- CDCs are the best community tion has clearly presented the NSP with structures to work through. some steering problems. While certain of (Minister, Islamic Republic of Afghanistan) ACKUthese problems are self-inflicted (e.g. the inactive coordination committees and lack Community-based development is of strategic thinking across its key develop- the future for Afghanistan and ment programmes), others are the product this is why CDCs are important; of its success in bidding for external they hold the key to its future. funding, such as petty inter-ministerial (Minister, Islamic Republic of Afghanistan) jealousy resulting in the deliberate engineering of bottle-necks in the delivery CDCs need to be properly integrated process (e.g. financial disbursement into the local system of government processes). These problems can only be because it is the only community dealt with effectively through the establish- structure that works. ment of a ‘whole government’ approach. (Minister, Islamic Republic of Afghanistan)

Despite the initial indifference of certain An integrated approach ministries towards the NSP, it is noteworthy to donor support that by end of the research process these The MRRD needs to integrate donors into FINDINGS AND same ministries had become NSP enthusi- the deliberative process more effectively. In RECOMMENDATIONS asts:

26 terms of donor coordination, here we can isterial coordination. In Phase 1 of the NSP see a policy of dividing and ruling donors. it was necessary to focus on an output- The donors themselves help this process by driven strategy (i.e. the rapid creation of poor coordination of their activities. The CDCs and disbursement of Block Grants) in External Review Committee is a case in order for the NSP to gain a national profile point. There is a need for a formal quarterly and to build credibility. It was therefore meeting: impossible to develop effective inter-ministerial partnering arrangements at this We would also like to have a juncture. However, for both political and formal quarterly meeting with the MRRD sustainability reasons it will be important to in which we discuss the MRRD develop a more collaborative approach in development programmes and assess Phase 2. This could be achieved through: efficiency issues and share good practice. (NSP donor stakeholder) the MRRD developing strong collaborations with indicative ministries All the donor stakeholders we have inter- (Education, Public Health, Water and viewed argued for more effective donor Energy, Agriculture, Women’s Affairs coordination with regard to development and Interior) in specific areas of NSP programming in general, and the NSP in programming involving national and particular. They argued that this would provincial level steering committees; allow them to: support the work of the NSP the establishment of an NSP unit more effectively; and avoid duplication and in each indicative ministry with the waste and ensure economies of scale in responsibility of coordinating joint development programming. As a case in programming; and point, during a workshop activity which we ministerial membership of an convened to discuss this mid-term evalua- NSP Steering Committee. tion with NSP stakeholders, it was brought to our attention that 4 donors had simultaneously commissioned mini-evaluations of the NSP, at considerable expense. 2.2 The role of the NSP Oversight Consultant in programme management and coordination A ‘whole government’ approach There is a profound problem in terms of the GTZ/DAI were given the OC role after the inter-ministerial coordination of the NSP. NSP was already up and running… The MRRD is a very effective ministry and ‘deliver, deliver, deliver’ they were told; needs to help develop the capacity of other well it has done that very well but a ministries. There is a great deal of jealousy lot of other things have gone undone in in weaker ministries; ‘they believe that the the process and they have only started MRRD monopolizes the large development sorting them out in the last six months. programmes’ (NSP donor stakeholder). (NSP FP Stakeholder)

The MRRD is a victim of its own success. It Lots of outputs, lots of good things is too ACKUefficient; too effective at talking achieved (which in the circumstances donor-speak and attracting resources and is a miracle) but from the perspective therefore prone to attracting enemies and of performance management and arousing petty jealousies. The position of assessment the NSP is a dog’s dinner. the President’s Office does cause some The strange thing is that despite confusion, the consequence of which is a all the problems it works. political environment where accusations, (NSP donor stakeholder) misperceptions and counter accusations abound. The President’s Office ‘needs to Considering what it has been asked intervene more directly in supporting the to do, the pressures that it has been NSP and broadening it out to a greater under and the obstacles it has faced, number of ministries’ (NSP donor stake- its achievements have been incredible. holder). (NSP donor stakeholder)

All the ministries consulted recognized the The evaluation of the role of the Oversight importance of establishing a ‘whole govern- Consultant in NSP programme management SECTION 2: ment’ approach to the NSP in Phase 2. This rests on an assessment of its ability to NATIONAL LEVEL would necessitate more effective inter-min- deliver on its core responsibilities to:

27 1. contribute to institution-building in the NSP began. The Ministry, through the local governance through the establish- NSP coordination office, retained its leader- ment of CDCs; ship in the areas of policy and programme 2. supervise partnership management with development, local governance, fund man- FPs; agement, inter-ministerial relationships, 3. engage in FP contract screening; interactions with NSP donors, as well as 4. prepare and implement sub-projects dealing with community complaints and with the support of FPs via CDCs and petitions. The organizational structure of disburse Block Grants to support their the NSP OC (as of October 2005) is development needs; presented above. The OC is comprised of 5. provide informal and formal training for 530 staff working in 34 provincial offices and MRRD (central, regional and provincial), 5 regional offices, and with a headquarters OC and FP staff; in Kabul. 6. provide training for members of CDCs; 7. deliver NSP information and awareness The overall performance of the OC was campaigns provided by the NSP’s Public evaluated as ‘highly satisfactory’ by the WB Communication Department; supervisory mission of October/November 8. monitor NSP projects; and 2006. While this evaluation concurs with the 9. prepare for the hand-over of NSP OC general tenor of this assessment, it identi- functions to the MRRD. fies the key obstacles to Programme delivery in NSP Phase 1, and provides a set GTZ/DAI was contracted by the MRRD as of recommendations for programme the OC of NSP to to provide Programme enhancement in Phase 2 of the Programme. oversight for the first three years after the There follows a snapshot of the survey Programme had already been running for findings which are analysed in greater detail six months. The entire MRRD NSP staff was in other sections of this report. integrated within the OC structure when

Box 1. The organizational structure of the NSP Oversight Consultant, GTZ-DAI

ACKU Management Employment Javid Karimi

Training & Capacity Development Hanife Kurt, Lene Petersen

28 Institution-building and preparation The main obstacles to effective delivery in and implementation of sub-projects this area have been ‘at least’ four-fold. First, the targets for 2004–6 were not developed We’ve got to get real about community with a rational understanding of how much governance. They’re asking us to do time community mobilization and sub- in a few months what it has taken project implementation takes. Secondly, the West decades to achieve. several bottle-necks emerged in the process (NSP FP stakeholder) of programme implementation, which have undermined the ability of the OC to meet Yes, policy is made and remade in the targets. Prolonged delays occurred in: the process of delivery. Good practices arise procurement process for securing critical from trial and error during the delivery goods; in the disbursement process due to process and it takes time to disseminate the absence of Block Grant funds, and in the those practices across the delivery system. inefficient transfer of funds from Da As the delivery mechanisms mature so Afghanistan Bank to CDC bank accounts. will our ability to mobilize communities Thirdly, long delays have also occurred in efficiently and effectively. the approval of extension contracts for (OC staff member) existing FPs and the contracting of additional FPs. Fourthly, it is also evident from It is important to keep things simple; our survey that there has been very little to focus on what matters. But this ‘political’ help forthcoming from the MRRD proceeds from the assumption that there or the donor community to help the is a general understanding of what NSP/OC deal with these bottle-necks in the matters. Unfortunately this has not disbursement process. It is therefore unsur- been the case until quite recently. prising that targets have not been met. The best conditions for development arise from all stakeholders having a common view on what matters FP management and focussing on achieving it. In general the OC and the FPs enjoy good (OC staff member) working relations, underpinned by regular meetings and a collaborative approach to While the NSP-OC has been unable to meet problem-solving. It is evident from respon- the targets for December 2004 to August dents that this relationship has improved 2006 established in its contract with the significantly in recent times. Six further MRRD, its achievements have nonetheless obstacles (in addition to the underestima- been remarkable. Since its involvement in tion of how much time community mobi- September 2003: lization and sub-project implementation takes) to effective FP management were the NSP has encompassed 193 districts identified by our sample of respondents.5 in all 34 provinces in Afghanistan; the NSP has reached 22,500 rural First, the relationship between FPs and the communities covering 38,000 rural OC has often been undermined by shifting settlements; expectations of the role of FPs in accor- the NSPACKU has benefited 10.5 million dance with MRRD or donor priorities: people and established 10,000 CDCs; 14,000 projects in 8,000 communities From the beginning the NSP was about have been financed with Block governance. It was never about economic Grant disbursements amounting to growth or pro-poor economic growth or US $166.1 million and total Block Grant poverty reduction or gender inclusion. 4 See NSP OC (2006), commitments of US $214.6 million; These objectives have been parachuted Analysis of the Experiences and more than 4,000 sub-projects have in without any real reflection on how Lessons Learned in Program been completed successfully.4 they can be achieved. Some FPs have the Implementation, GTZ-IS, experience to make progress on these Kabul, March 2006, pp. 3–5. In addition, this survey identifies significant issues but others don’t. This clearly puts evidence of: pressure on the OC-FP relationship. 5 See Section 2.3 for a (NSP FP stakeholder) more detailed exposition. increased public faith in the system of government; There is a tendency for donors to think improved community relations; that they can use CDCs as a ‘cure-all’ to SECTION 2: improved state-civil society relations; deliver on all their in-country priorities; NATIONAL LEVEL and what they need to remember is that this is the empowerment of CDCs.

29 Afghanistan we’re talking about and not systems between NSP stakeholders and the US, Japan, Canada or elsewhere… communities. As one FP stakeholder argues: (NSP FP stakeholder) A fundamental premise in the Technical This problem has been compounded by the Annex of the NSP is that communities are absence of joined-up thinking across devel- trustworthy…as long as communities go opment programmes and the failure to through the process you don’t need the develop effective processes of cross- engineering verification as this should programme learning: happen in the evaluation process… there needs to be an effective balance between There has been a clear lack of strategic the need for a paper trail and expedience. thinking between ministries on rural Tr ust management is crucial to the development and this is reflected in the efficient delivery of the NSP. rural communities themselves. (NSP FP stakeholder) The counter claim to this view is of course that the very act of creating formal The MRRD needs to reach out to achieve processes is a form of capacity development a ‘whole government’ approach and in itself. there is no evidence that it is doing so. (NSP FP stakeholder) Training 6 Thirdly, there has been insufficient lesson- drawing across FPs: The NSP provides: Informal ‘on the job’ training with an In this rush to roll-out the NSP to estimated total of 50,000 person training more and more communities we days for MRRD (central, regional and don’t have time to do enough learning provincial), OC and FP staff; from each other’s experiences. Formal training with approximately (NSP FP stakeholder) 9,000 person days for the same target groups; Hence, the OC needs to play a greater role Members of approximately 10,000 CDCs in generating collaboration between FPs. and communities participate in the training provided by the FPs; Fourthly, bottlenecks in the coordination of Information and awareness campaigns NSP disbursement and procurement are provided by the Public processes have heightened tensions Communications Unit (PCU) to between FPs and communities: underpin the training activities; and FPs also provide training for CDCs in The NSP has created too many key areas of institutional and community gatekeepers who are unwilling to accept development. responsibility but have to demonstrate their power to obstruct. Hence, the capacity development dimen- (NSP FP stakeholder) sion of the NSP is really quite considerable ACKUand should be considered as one of the Fifthly, FPs contend that they are placed most important outputs of the NSP. under significant pressure to implement rather than facilitate the NSP. This ultimately OC understanding of capacity-building limits the benefits that CDCs can derive from the NSP in terms of capacity develop- The emphasis on roll-out and the sheer ment: effort that that has involved has meant that the focus has been on CDCs and FPs The new imperative is sub-project and the OC-MRRD ‘people’ issues have completion, when building the capacity been neglected. We are now working of CDCs is much more important and hard to catch-up. was the original purpose of the NSP. (OC staff member) (NSP FP stakeholder) 6 See Section 2.2 for further The concept of capacity-building employed observations on NSP training. Finally, there is also evidence that the very by the OC focusses on ‘skills and knowledge act of developing westernized formal transfer’ (OC staff member). This rather processes to ensure transparent and narrow understanding reflects the ‘relief’ FINDINGS AND accountable delivery systems erodes trust rather than ‘developmental’ mentality that RECOMMENDATIONS

30 underpinned the operation of NSP Phase 1, nating training. It is envisaged that the and is reflected in the absence of the devel- amount of training delivered at the provin- opment of a strategic approach to capacity cial level will increase accordingly.8 development. On its own admission the OC has neglected the human resource manage- The OC provides high quality training for ment aspect of the NSP but it must be noted CDC members. Indeed, it is our view that that the OC is presently recruiting a human the training packages delivered at this level resource development specialist to design a provide examples of international best human resource strategy.7 There are other practice. The packages themselves are areas that were also neglected at the carefully crafted using culturally sensitive strategic level: role play, team building exercises, and, lesson-drawing exercises. The central A change management strategy wasn’t reason for the success of the training is that developed to deal with the problems of it has evolved from participatory processes cultural change inherent in transforming and is genuinely Afghan in design and old administrative systems; approach. With regard to CDC training A needs assessment wasn’t conducted conducted by FPs, it is evident from our to identify the skills gaps in MRRD staff; survey that the best CDC training is spread A logical framework to guide throughout the programme cycle and programme management around the should not be front-loaded. achievement of milestones was not developed; and How is the impact of training on perform- the OC’s capacity-building strategy, such ance (i.e. programme outcomes) evaluated? as it was, did not have linkages with the The OC uses a testing tool to evaluate the broader process of civil service reform impact of training on output. For example, in Afghanistan. there is significant evidence to demonstrate that engineering training has improved the This third observation is particularly quality of build. important as a large part of the NSP’s training activities involve building the skills Three main gaps can be identified in the of civil servants in the MRRD. However, it training repertoire: strategic capacity devel- has not proved possible to integrate NSP opment training packages for MRRD staff; thinking with MRRD thinking in terms of the absence of effective training in manage- identifying the type of civil servant the ment and leadership skills; and general Afghan government would like to produce, office skills: i.e. the range of skills required to assume a full role in the operational delivery of the In Phase 2 of the NSP, capacity-building NSP. Concerted efforts will need to be taken will become increasingly prescient in all of these areas in NSP Phase 2. because of the impending hand-over to the MRRD. Policy instruments (OC staff member) The training strategy deployed by the OC has focussed mainly on providing training The OC is now planning management packagesACKU to underpin the main areas of the training for unit and provincial heads and NSP’s activities (e.g. accounting, procure- team building training for provincial man- ment, CDC institution and capacity-building agement. A management consultant is being etc.). Effective work and training plans are contracted to advise on the issue. As one provided for each aspect of the Programme. OC staff member put it, ‘the initial emphasis 7 The OC does have an The OC has used a cascade system whereby was on getting things going; now the focus effective performance appraisal ‘trainers train trainees who become trainers’ is on the development of management system for its own staff. in a virtuous circle of capacity development. skills’ (OC staff member). However, the OC has recently decided that 8 See NSP OC (2006), this approach is not working satisfactorily, Obstacles to capacity development Analysis of the Experiences and ‘…the problem with the cascade system is The obstacles to capacity development Lessons Learned in Program that a certain amount of knowledge is lost identified by respondents can be organized Implementation, GTZ-IS, between the layers’ (OC staff member). The into two main categories – problems of Kabul, March 2006, pp. 34–35. OC has therefore proposed a modular bureaucracy and problems of cultural approach (i.e. the development of modules change. The first set of obstacles include: linked to key skills development) to capacity the problem of high staff turnover; the SECTION 2: development which will increase its existence of too many forms; constant NATIONAL LEVEL function in terms of facilitating and coordi- changes to the NSP Operational Manual

31 requiring additional training support; civil editors, and it produces its own television service tenure providing disincentives for programmes, including an NSP soap opera. MRRD staff to engage fully in training activi- Television coverage is considered central to ties or to take initiative in the workplace. the PCU’s work and it has been successful in Issues of cultural change include: the need securing agreements with all the major for MRRD staff to move away from a planned Afghan channels to air NSP programmes on system mindset; the problem of low rates of a regular basis. The PCU also coordinates literacy in CDCs (including social organiz- and stage manages the monthly NSP ers); limited female involvement in training; ‘Roadshow’ which has proved highly and maintaining the interest of CDCs in effective in raising public awareness of the lengthy processes of training. However, the NSP. The impact of the work of the PCU is most serious obstacle to effective capacity monitored using sophisticated content development lies in the poor integration of analysis techniques. The evaluation team MRRD staff into NSP work. As one OC staff has found significant evidence from these member put it: sources of the important work that the PCU has played in both promoting and maintain- We were just given a list of ing public interest in the NSP. Indeed, this is MRRD staff and told to integrate them; a further area in which international best no consultation, no nothing. Integration practices are being delivered. has not been well planned. For example, it hasn’t been linked to the development The only area of concern which should be of the core skills necessary to deliver raised in relation to the work of the PCU lies core NSP functions. We’ve done our in its capacity development strategy for best but without cooperation we can’t MRRD staff. It has proved very difficult for move forward very quickly. the PCU to integrate MRRD staff into the work of the PCU and build their capacity to Summary assume its functions. This has largely been Three main conclusions can be drawn from due to the recalcitrance of MRRD staff. this sub-section. First, the OC needs to Better lines of communication between the complete its work at the strategic level with OC and the MRRD must be established in regard to the completion of its human this area to ease tensions. resources strategy, change management strategy, needs assessment for MRRD staff, logical framework to guide programme Information system management management around the achievement of The OC possesses highly effective informa- milestones, and capacity development tion systems which are extremely well strategy with linkages into the broader managed and are a model of good practice. process of civil service reform in It is, however, a victim of its own success in Afghanistan. This will help to remove the sense that the capacity of the MIS Unit certain of the obstacles to capacity develop- to provide high quality reports is often ment. Secondly, it is evident that the OC is called upon by MRRD staff which takes OC extremely reflexive on training issues and staff away from their core responsibilities delivers best practice in relation to CDC and creates excessive workload demands. capacity development. Thirdly, it is evident ACKUThe staffing costs for the MIS are linked to that sufficient numbers of MRRD staff do the Unit’s core NSP functions, so any addi- not presently possess the skills necessary to tional tasks should be funded from other assume the operational delivery of the NSP sources. or, as an OC staff member put it, ‘they can only do it if they recruit existing Afghan OC Future terms of reference for the MIS and international staff’. should therefore focus on the functions it performs in managing and reporting essential and relevant NSP information. In Public relations addition, the possibility of decentralizing While the Public Communication Unit certain areas of data entry, archiving and (PCU) plays an important role in reinforcing management to OC PO should be explored key messages in CDC training, its main role to assist with the capacity development of is to promote the work of the NSP. It does MRRD staff, to ease the workload burden on this in five ways – via the radio, television, the centre, and to make for more efficient Internet, print and NSP events. The PCU has programme delivery. It is also worth noting its own press agency with 20 full-time that as well as the development of highly FINDINGS AND reporters working in the field and three efficient information systems, there is also RECOMMENDATIONS

32 evidence in this area of effective capacity …on the basis of existing available development of Afghan staff through information from government records shadowing. The Unit’s good practices in (e.g. the list of registered villages from capacity development should be diffused to the 1970s, or the list of villages prepared other units within the OC. for the nomination of the members of the 2002 Loya Jirga). However, since the reliability of the available official data Programme monitoring on villages was inconsistent when the records were established, and since it The OC did not develop a logical is by now outdated due to population framework for the programme, nor did increase and/or displacements, the it develop a coherent monitoring and identification of communities for the evaluation framework…the right data purpose of the NSP would have to reflect does not appear to have been collected the ground realities existing today.9 in relation to the key performance indicators…in spite of this the While the NSP/OC has made concerted outputs have been significant and efforts over the past six months to work on the role of FPs has been pretty good. these deficiencies through the improve- (MRRD representative) ment of forms and the strengthening of post implementation monitoring processes, It is universally recognized that ‘progress’ at present the base-line field data does not should be measured over the life of any exist to conduct a ‘scientific evaluation’ of development programme. This is significant the achievements of the Programme to all investors in managing the Programme (however significant they may be). These from the donor community, to the MRRD, problems have been exacerbated by the to provincial and district authorities, to facil- constant changing of NSP objectives and key itating partners, to the NSP/OC responsible performance indicators in the Operational for maximizing the cost effectiveness of Manual in response to new political priori- interventions of this kind and, most signifi- ties.10 cantly, to people living in rural areas. Relevant and practicable indicators should In order to ensure effective monitoring and therefore have been identified at the outset evaluation, it is now crucial to have: a and their values monitored as the settled understanding of programme objec- Programme unfolded. Unfortunately, this tives in order to achieve desired outputs; was not the case during Phase 1 the establishment of a rational NSP Phase 2 Programme, although there is significant Operational Manual; the establishment of evidence to suggest that major improve- a simple set of key performance indicators ments have now been achieved in this area for monitoring progress in relation to the thanks to the recruitment of a highly achievement of these objectives, which can effective unit head in spring 2005. be measured over time; and the completion of coherent and consistent community Monitoring of the NSP has had a chequered profiles of all CDCs for comparative and history. The original view was that, ‘effective evaluative purposes. This latter task could monitoringACKU could be achieved on the basis be completed by the large cohort of MRRD of quarterly reports from the FPs’ (former monitors (approximately 108). OC staff member), and did not require elaborate systems. Indeed, the argument Monitoring and evaluation is a further area was that detailed evaluation should be where the MRRD lacks the capacity at conducted by independent evaluators on a present to assume the OC’s role, and signif- cyclical basis and that the role of monitoring icant thinking needs to be paid to capacity 9 NSP Operational Manual, should purely focus on whether CDCs were development issues. This is likely to require revised 28 October 2005, making progress. It did not prove possible more effective integration of the monitoring pp. 17–18. to develop an accurate community base-line and evaluation units in the OC and the to monitor progress and indeed compare MRRD, and increased responsibility for the 10 See NSP/OC (2005), progress across communities. This is Rural Rehabilitation and Development PO. ‘NSP 1: Lessons Learned’, because community profiles were not Kabul, NSP/OC. drawn up to common criteria as the Programme rolled-out. The current Exit strategy Operational Manual observes that the It is evident from our investigations that in SECTION 2: communities are defined: the short-term the MRRD will not have the NATIONAL LEVEL capacity to take over the NSP without a

33 continued role for the OC. The Exit Strategy devised; and g) a logical framework for has been devised too late. This should have implementation completed. been considered from the beginning of the Programme. Moreover, the Exit Strategy All of these areas of ‘rational’ programme options should have been reviewed by an management are now being attended to, independent party (i.e. not the OC or the but this does mean that much of the institu- MRRD). Although the MRRD has some tion-building and the capacity development highly effective staff at the senior manage- work that needed to be completed to allow ment level, there is not sufficient talent in for a hand-over to the MRRD in July 2006 is depth to assume the OC role in 2006. in the process of completion.

We also noted that there continues to be a There is currently significant debate within high level of political uncertainty regarding the MRRD and the NSP/OC over the most the future of the NSP and the handover suitable institutional venue for the delivery from the OC to the MRRD. This uncertainty of the NSP in Phase 2 once the MRRD has has started to affect the morale of the FPs. It taken over the management of the is widely acknowledged that HE Haneef Programme. Three options have been Atmar is not only a strong supporter of the debated: full integration; re-tender for a NSP but the creative force behind it, and new OC; or create a ‘not for profit’ semi- there are worries that if he moves to autonomous organization as a special another ministry, political support for the project under the Ministry. The third option NSP may well wane. is being proposed by the MRRD as it provides the Ministry with the ability to secure the services of high quality, experienced staff in the field of rural community 2.3 Summary and recommendations development who demand high salaries, for national level coordination while simultaneously developing the capacity of national staff. However, we From the outset, it was impossible for the believe that these aspirations can be met OC to adopt a ‘rational’ approach to through a fourth option; the creation of an programme management for at least 3 main executive agency for NSP delivery. reasons: the obligation to deliver on output- driven objectives has meant that they had to hit the ground running to establish the A ‘whole government’ approach delivery system for the rapid creation of – reforming decision structures CDCs and the disbursement of Block Grants; the absence of clear programme objectives has meant that they have always Recommendation 8 been engaged in institutional ‘catch-up’ in A new institutional structure is recom- relation to new priority settings identified mended for the national level coordina- by the MRRD and donors; and the lack of a tion of the NSP. The dysfunctional External settled understanding of the role of the OC Review Committee and the Inter-ministe- by the MRRD and the donors has meant that rial Committee should be replaced with they have had to shift human and institu- ACKUthree new committees – an NSP Steering tional resources to support non-core NSP Committee, a donor Support Group and activities in response to changing political an Inter-ministerial Committee. expectations (e.g. MIS). The NSP Steering Committee should meet Hence, the OC was not provided with the every two months, it should be chaired by time to initiate a phasing-in strategy during the Ministry with oversight of local gover- which: a) a rational Operational Manual nance matters, and be comprised of the NSP could be finalized with clear programme Coordinator, the first and deputy Minister of objectives; b) consistent performance indi- the MRRD, the OC, the NSP Coordinator, cators could be identified and effective representatives from partnering ministries, monitoring systems established; c) five CDC representatives from NSP regions, coherent and consistent community and a representative of the facilitating profiles completed; d) a capacity develop- partners. ment strategy for MRRD staff could be developed; e) a human resource manage- The donor Support Group should meet ment strategy could be devised for NSP OC quarterly; it should be chaired by a presi- FINDINGS AND staff; f) a rational NSP/OC exit strategy dential nominee, and be comprised of all RECOMMENDATIONS

34 the donor stakeholders, the First and Recommendation 11 Deputy Minister of the MRRD, and the NSP While we recognize that excellent work is Coordinator. In addition to ensuring donor being conducted in these areas, the OC accountability, the role of the group will be needs to complete its work at the strategic to convene ‘action-oriented’ meetings with level with regard to the completion of its: minutes in order to support the work of the human resources strategy; change man- NSP more effectively. agement strategy; logical framework to guide programme management around The Inter-ministerial Committee should the achievement of milestones; needs meet quarterly and be chaired by a presi- assessment for MRRD staff; capacity devel- dential nominee and include representation opment strategy with linkages into the from all partnering ministries. Its key role broader process of civil service reform in will be to identify areas of duplication and Afghanistan; a quality assurance strategy waste, potential areas of joint working, and to ensure sustainable programming; and a NSP input into ministerial development final NSP/OC exit strategy. plans and vice versa. Day to day management of the NSP would remain with the NSP/OC. Recommendation 12 This institutional design would provide the We recommend the creation of an architecture for a ‘whole government’ executive agency as a new institutional approach to the national coordination of venue for the delivery of the NSP; a model the NSP, foster greater inter-ministerial and of operational service delivery currently presidential collaboration, and provide for deployed in most OECD member states (see more proactive donor support. A ‘whole Section 7 for more detail). government’ approach should be integrated at all levels of programme delivery in appropriate areas of programming.

Recommendation 9 We also recommend that the MRRD develops a strategic plan to integrate the NSP with other national programmes such as: the Water and Sanitation Programme (WATSAN); emergency employment (NEEPRA), mostly for labour-intensive road building; the Microfinance Programme (MISFA); the Emergency Response Programme (in Badghis, Bamyan, Herat, Kabul, Kundoz, Nangarhar, Paktia, and Paktika), and, in particular, NABDP. It is crucial ACKUto adopt a strategic approach to large-scale development programming to ensure that a joined-up approach is taken that avoids duplication and waste, and meets broader national development goals.

Recommendation 10 We recommend the establishment of: a rational NSP Phase 2 Operational Manual with a coherent set of programme objectives which can be measured over time, and a simple set of key performance indicators for monitoring progress in relation to the achievement of these objectives. SECTION 2: NATIONAL LEVEL

35 ACKU

FINDINGS AND RECOMMENDATIONS

36 Findings and Recommendations Sub-national Level Coordination 3 and Operational Delivery of the NSP

The MRRD at the provincial level section addresses the entry point for long- does not have the capacity to deliver the term institutional capacity development. NSP…so much work needs to be done This analysis concludes by identifying the to bring them up to speed…there is main achievements and strengths in enthusiasm but no hard skills. addition to deficiencies and threats to the (NSP FP Stakeholder) management of the NSP. The latter are matched by a set of specific recommenda- This section of the report focusses on the tions. role of 3 further groups of stakeholders in the coordination and operational delivery of It should be stated at the outset that this the NSP – sub-national governments (DRRD analysis is partly based on a self-evaluation provincial and district levels), provincial by provincial and district DRRD staff and is OCs and their teams, and FPs. therefore particularly relevant since it artic- ulates their views on potential areas of programme enhancement. Furthermore, it is proposed that these views are representa- 3.1 Sub-national level coordination tive of the wider national dimension and operational delivery of the NSP because all relevant levels of DRRD staff – the MRRD and provincial and (provincial, district, NSP Unit managers and district government field staff) were interviewed across 10 provinces. Some of the findings from the The main challenge for the MRRD in interviews with provincial governors and/or ensuring the sustainability of the NSP is to deputy governors are also included because maintain and improve its capacity to of their insight into the management of the manageACKU the delivery of the Programme’s NSP at the sub-national level. aims and objectives. This involves using its horizontal and vertical institutional linkages within the provincial and district levels of Sub-national bureaucratic elite government, and employing sufficiently perceptions of the impact of the qualified staff to tackle the technical aspects NSP on rural communities of community development. The aim of this Provincial and district level DRRD analysis is to separate some of the salient employees, and provincial governors aspects of this challenge. observed that the NSP was making a positive contribution to the development of This analysis of the provincial and district national solidarity. This is manifested in DRRD staff is divided into three main sub- three interrelated areas: an improved rela- sections. Firstly, it is important to review the tionship between the NSP communities and improved relationship between the NSP the Afghan government; stronger participating communities and the Afghan community relations; and evidence of the government. The second sub-section estab- limited empowerment of CDCs. lishes the entry point for further staff capacity development and the last sub-

37 The relationship between which is considered unprecedented in NSP communities and government Nangarhar. In other provinces, some All provincial and district level staff inter- respondents also point to knock-on viewed for this evaluation have perceived a linkages between the State and civil society significant improvement in the relationship in general. between the participating communities and government. There is general agreement Fourthly, it is argued that the establishment that this shift has been a direct result of the of a complaints procedure is a key element NSP and its activities. The improved rela- of this maturing relationship. Whether used tionship with the communities is connected or not, government respondents asserted to both levels of government: provincial and that the communities respected the district. The sources of this improved rela- provision for redress and found it effective tionship are considered to be four-fold. (Badhgis, Balkh, and Herat). In Balkh and Herat, complaints were divided into ‘direct Firstly, it is defined in terms of the quality of complaints from the CDC and the shura or the contact; i.e. DRRD staff have a clear via the FP’, by the FP, or from miscellaneous understanding of the nature and purpose of community actors. For each type, the initial the relationship and thus the rationale of approach was to hold a meeting with all the Programme. In Balkh, the DRRD officials those concerned (CDC, FP, DRRD and NSP described ‘visiting, advising and directing staff) and the provincial DRRD held a them [CDCs] though not interfering nor ‘weekly meeting every Tuesday for two controlling’. In Paktika, working relations hours’. If unsuccessful, then a case would be with the CDCs are described as ‘friendly and sent up the chain of authority within the cooperative’. In Herat, there is particular MRRD (district – provincial – national). importance attached to the presence of the Director or Deputy Director of the DRRD The provision for addressing complaints during the inauguration of projects. also acted as an important conflict preven- However, in Balkh it was noted that 10 per tion mechanism. For example, in Kabul, the cent of the people are not satisfied because DRRD staff recalled how they conducted the NSP is ‘a very new concept and transparent investigations into the imple- therefore difficult to implement com- mentation of a project’s budget, which suc- pletely’. This is compounded by the cessfully resolved the only two community people’s ‘very high’ expectations of large- registered complaints. The latter example scale development projects. reflected both the establishment of a process of growing trust in the DRRD as The second feature of the improved rela- impartial public servants, but also demon- tionship is the frequent interaction between stration of the barriers to establishing trans- government and communities. The DRRD parency and accountability for an unedu- representatives in Takhar describe how ‘NSP cated and often socially marginalized popu- staff together with the OC team regularly lation. Of course, a degree of suspicion visits the CDCs and discuss issues related to within a community is natural and can also [the] NSP projects’. form a last line of defence against corruption and malpractice. Interestingly, in A third characteristic of this improved rela- ACKUPaktika, respondents believed that there tionship is the provision of incentives for was ‘no standard complaints procedure’ but the communities to participate in the NSP. emphasized that written complaints were Respondents believe that the fundamental received, which were either tackled imme- attraction for communities is the opportu- diately or sent to the MRRD if necessary. nity to play a major and direct role in the local decision-making process and their Inter- and intra-community relations acceptance of the ensuing responsibilities of The NSP is considered to have directly legitimate authority while building upon the strengthened inter and intra-community traditional shura system. At a more basic relations, and has thus furthered progress level, the Programme is considered to have towards greater national solidarity. In partic- enlightened those involved in Herat, ular, it is claimed that both types of thereby causing more activity within the community relations benefited from the communities. Similarly, in Kundoz, an binding nature of the CDCs and the increase in awareness and interaction was projects. noted. In sum, incentives stem from the widespread recognition that the govern- Intra-community relations have been FINDINGS AND ment is interested in the communities, augmented because the NSP encourages RECOMMENDATIONS

38 communities to unify through a democrati- in Takhar felt that the FP had prevented the cally elected and organized CDC, which CDCs from becoming a durable institution. enjoys constitutional status. Respondents in It was suggested that although some CDCs Paktia emphasized the significance of the had the ability to become independent and latter. Furthermore, group cohesion is self-sustaining, the majority still required fostered through the common goal of the funding and technical support and training project. Respondents in Kabul were not from the NSP (Badghis, Balkh, Bamyan, alone in recalling instances of CDCs Herat, Kundoz, and Paktia). Estimates resolving tribal, clan and familial tensions ranged from a further two to three years in even where higher authorities proved inef- Paktia, to 8 to 10 years in Balkh. In Herat, it fective. At the same time, the Nangarhar was felt that further credibility and sustain- case also reveals incidences of power ability was also dependent on the recogni- struggles between community elites, arising tion of CDCs as the key instrument of when community expectations are not met community development by all government (in time) and where a traditional shura feels departments. marginalized by changes in local governance. Government respondents were par- In relation to the second component of ticularly impressed by examples of multieth- empowerment – the foundational values of nic CDCs, as exemplified in Kabul and self-determined community development: Kundoz. Conversely, ethnic tensions were community support (as demonstrated by not completely resolved in Balkh, where the the widespread use of the community Provincial Governor acknowledged, and of savings boxes) and legitimate authority and course rejected, the criticism from Hazaras responsibility (based on the principle of in the province that he had manipulated the equality and fair representation) were selection of NSP villages in response to observed by the vast majority of govern- ethno-political allegiances. ment representatives.

The survey also revealed several examples Thirdly, with regard to the long-term sus- of strengthened inter-community relations. tainability of CDCs, some of the provincial Three insightful cases in Balkh Province governors also stated their belief in the demonstrated the centripetal drive of the long-term prospects of the NSP. For NSP, which encouraged villages of different example, Governor Atta believed that the ethnic groups in Dawlatabad, Charbolak NSP would achieve long-term acceptance in and Kishendeh Districts to cooperate Balkh because of the nature of the projects through joint projects involving the building and the transference of responsibility to the of a school, a well and a road, respectively. communities. In particular, Governor Atta Similarly, in Herat, DRRD staff noted the and the Deputy Governor of Nangarhar greater interconnectedness between ‘sur- focussed on the communities’ involvement rounding villages’. However, there is also in the decision-making process, needs some evidence of smaller communities assessment, and the setting of priorities. being prevented from institution building because of their geographical isolation. Fourthly, in reference to issues of community mobilization, as Balkh and EvidenceACKU of Community Empowerment Kabul DRRD staff noted, unlike the previous The extent of the empowerment of CDCs is donor-driven approach, it was empowering perhaps the most crucial indicator of the that the NSP first surveyed needs, with NSP’s impact, as perceived by the DRRD. NGOs and donors acting as subcontractors This has five key components: the capacity and with the government required at all of CDCs to play the central role in stages in the process. It was felt that this community level governance; the legitimacy developed the capacity of the CDCs to of CDCs as institutions of community level approach other organizations and agencies governance; the longer-term prospects for for ‘top-up’ funding, and even for non-NSP the NSP; the process of community mobi- development projects. As stated in the Goal lization; and issues of gender mainstream- and Objectives of the NSP (I.B and I.B. (ii)), ing. it was designed to create an entry point or environment for poverty reduction through With regard to the first component, all community empowerment and by creating DRRD representatives (except in Takhar) projects to build infrastructure. It was considered the CDCs to be largely well agreed by all respondents in Kundoz and SECTION 3: managed and to possess the capacity to Paktia that the community projects are SUB-NATIONAL LEVEL become permanent institutions. The DRRD helpful in creating job opportunities. The

39 DRRD Director in Bamyan also thought that Bamyan, Herat, Kabul, Kundoz, Nangarhar, the NSP would enable poverty reduction Paktia, and Paktika. The DRRD in Herat and thus constituted a significant develop- provided examples of substantive overlaps ment programme. between the programmes. Furthermore, several senior management staff noted Finally, approximately half of the beneficiar- important relevant experience gained from ies, some DRRD staff and the Governor of outside the policy framework. For example, Balkh emphasized the need for improve- the DRRD Director in Paktia had worked for ments in the empowerment of women. It 15 years in community development during was proposed that this should occur by and after the war. women gaining a more equal role in the decision-making and implementation However, two caveats must also be noted. processes, in addition to ensuring that Firstly, the DRRD Director in Bamyan delivered projects were responsive to their acknowledged that the NSP complemented development needs. the other programmes, but emphasized that it was qualitatively different. Secondly, the This sub-section has provided a detailed DRRD Director in Kundoz added that most assessment of the scope and intensity of the of the other five programmes are imple- NSP’s impact, as perceived by DRRD repre- mented directly by NGOs and not by the sentatives. The direct emergence of micro- DRRD, whose role remained ‘minor and conflict resolution processes was a crucial mostly superficial’. cross-cutting theme (within the community and between the community and the state). NSP community development experience However, three main concerns were also As a significant institutional indicator, the articulated: the operation of an effective Community-led Development Departments though inconsistent complaints procedure; commenced their activities in 2002–3, with the emergence of intra-community power the latest starting in 2004. Staff could struggles; and gaps in the achievement of therefore rely to a certain degree on strong principles for sustainable development, in institutional expertise and awareness. This particular, the exclusion of women. was reflected by the number of projects and the coverage of the Programme. For example, 400 of the 611 projects were The potential sources for long-term completed in Bamyan, with 324 ongoing ‘staff’ capacity development projects in 7 districts in Kabul. Furthermore, This sub-section investigates the potential all MRRD staff had an extremely positive for long-term DRRD staff capacity develop- perspective on the management and per- ment with the goal of improving the man- formance of the NSP, and there was a agement of the NSP. Accordingly, it common drive to cover other communities compares DRRD staff assessment of: general and districts (for instance, in Bamyan and community development experience; NSP Balkh). This was an important indicator of community development experience; and confident management although it was cir- NSP training. It then highlights the potential cumscribed by resources. sources for improving capacity, which stem from the DRRD’s experience of managing ACKUIn addition to the general supervisory role development projects within the Afghan prescribed by the NSP, some provincial national policy framework and advance- DRRDs emphasized the need for a context- ments in training. tailored approach. For example, DRRD staff in Kabul believed their preparatory peace- General community building work was an important foundation development experience for the subsequent programme activities The DRRD’s community development expe- conducted by the FP. The NSP Manager and rience mainly stems from the concurrent staff in Badhgis claimed to have spent most implementation of five national community of their time in the field supervising the development programmes: the Water and projects. Nangarhar was an exception, Sanitation Programme (WATSAN); emer- where DRRD staff could only recall a more gency employment, mostly for labour- symbolic involvement in the Programme; intensive road building (NEEPRA); the for example, the inauguration of projects National Area-Based Development Pro- and the distribution of certificates. The gramme (NABDP); Microfinance Pro- Deputy Governor of the Province suggested gramme (MISFA); and the Emergency that this was simply a problem stemming FINDINGS AND Response Programme (ERP) in Badghis, from weak capacity. RECOMMENDATIONS

40 For the majority of the provinces (including quately qualified, which ‘limited the transfer each level of staff) interviewed, the quality of knowledge to the CDCs’. Naturally, the (effectiveness) of work was prioritized variation in training meant it was difficult to before the efficiency (number of projects). discern which one was most useful overall. This was best encapsulated by staff in Balkh Apart from the DRRD directors’ cascading when they stated that they ‘emphasize the technique, training was generally delivered capacity development of communities by the OCs and FPs (Balkh, Kabul, Kundoz, rather than spending money’. Other similar and Paktia). qualitative indicators included the benefit to the community (Paktia), the sustainability of the projects (Paktika) and the honesty and Box 2. dedication of the FP (Kabul). Staff in The training of DRRD staff Nangarhar also stated these factors while in Kundoz admitting the number and location of The only training the DRRD received from projects were equally important.11 the NSP was the sending of 3 employees to work with the FP to receive on-the-job NSP training training. This started 7 months prior to the All the members of the NSP teams within research and was expected to last for one the DRRD had received specific training on year. The respondent did not think that managing the Programme. However, the there had been any corresponding increase nature (scope, length, and style), and thus in the capacity of the individuals. standard, of the training varied considerably.

As a minimum, all respondents were trained in the use of the official Operational Finally, two other main weaknesses in Manual. Staff in Nangarhar claimed their training were noted. The Provincial training was restricted to the latter. Governor of Kabul (based on NSP experi- Alternatively, there was greater scope in ence in Nangarhar) concluded that the Badghis, with instruction on community management of the Programme was too mobilization, while the DRRD Director in expensive. While the Deputy Governor of Bamyan was trained in monitoring and Bamyan disagreed (compared to conven- community development. Those in Kabul tional reconstruction programmes by con- and Paktika received a more general NSP tractors and NGOs), both senior representa- orientation and training. The DRRD tives concurred that the best solution was Director and staff in Balkh and Paktia increased capacity development of seemed to receive more specific guidance Afghan/DRRD staff and institutions. on activity training for procurement, programme management, monitoring and Secondly, particular emphasis was placed on 11 In Herat, DRRD respondents evaluation and financial duties. improving technical (engineering and mon- were unable to answer this itoring and evaluation) and computer skills question. The length and style of training was also in addition to English language training, to uneven across the provinces visited. For allow for the provision of more sophisti- 12 As a possible explanation for instance, this ranged from three days to two cated management courses by international the variation, training might have monthsACKU for the DRRD directors in Paktika organizations and agencies. been tailored to the existing level and Balkh, respectively; and from three days of experience of each director to one year for provincial and district staff in In sum, the DRRD representatives relied on and staff, with the aim of Balkh and Kundoz, respectively.12 Paktika three types of relevant development experi- reaching a healthy balance in was in the middle, with two weeks of orien- ence. Overall, training was effective in each DRRD. For example, the tation. For provincial and district staff, in building capacities but it suffered from an Balkh DRRD Director received Badghis and Kundoz the training was on-site uneven application, with a resultant fluctua- two months of training whereas and informal (see Box 2 below), whereas tion in the experiences and training of staff. his provincial and district staff formal workshops and meetings in addition Therefore, long-term improvements in staff claimed three days, but also to the cascading technique from the DRDD capacity development ought to focus on acknowledged continuous director were observed in Balkh, Herat, greater consistency; that is, across the cascading training from the Kabul, Paktia, and Paktika. Balkh district provincial DRRDs and down to the district Director once he returned staff felt that the FPs’ experiences and level. Similar trends, in addition to separate from Kabul. resources provided the best opportunities strengths and weaknesses, are found in an for improvement and thus, ‘met with FPs analysis of the institutional capacity devel- regularly, sometimes daily or weekly, if not opment. SECTION 3: monthly’. However, they also felt that not all SUB-NATIONAL LEVEL the FP community mobilizers were ade-

41 The potential sources for long-term ‘institutional’ capacity development Box 3. An analysis of the key strengths and weak- Transportation stress in Bamyan nesses or strains in programme manage- DRRD officials in Bamyan noted that they ment, as perceived by the DRRD represen- had only two vehicles and a limited budget tatives, uncovers the potential sources for for running costs to cover 6 districts: one long-term institutional capacity develop- was allocated to the central office and one ment. While strengths or opportunities for was for monitoring all the ongoing national capacity development are noted, there were programmes. four main strains in programme management. The first strain observed arises from a significant shortfall in human and physical resources. Weaknesses in institutional struc- not having enough vehicles and mobile tures represent the second strain and the phones to visit and keep in contact with need to improve cooperation with other communities. For example, the DRRD ministries, and institutional learning is the Director in Kabul noted that his fuel third. The last strain encompasses five key allowance lasted only for half the month, programme design flaws. after which he relies on lifts to carry out supervision. Herat DRRD staff were unique Insufficient human in not having operational problems, for and operational resources example, transportation. However, it should In each province, the problem of insuffi- be noted that they received assistance from cient staff was a recurring complaint, both the FP and OC. in terms of number and relevant technical proficiency. Engineers were specifically and Tensions in the institutional structure repeatedly highlighted in this respect. Some tensions in the institutional structure Respondents believed that these quantita- of the NSP were raised by DRRD represen- tive and qualitative deficits in human tatives. The Provincial Governor in Kabul resources significantly reduced institutional (based on his experience in Nangarhar) rec- capacity, and these gaps were particularly ommended that the conflicting models for obvious when working alongside the MRRD, community and district governance (tradi- OC, FPs, and other international NGOs. For tional shuras of elders versus proposals for example, Balkh district staff stated that elected district councils) should be resolved there are ‘only four of us with the capacity by creating one inclusive structure. to carry out the NSP’ and that some districts did not have DRRD staff. The Director of the Secondly, the provincial DRRD Director in DRRD in Kabul stressed that the ‘MRRD has Balkh preferred that CDCs were not granted 13 The NSP Unit in each the leading role in implementing NSP – complete authority because they tended to province typically consisted of without it the OC and the FP could not lack adequate experience. He used the two staff in addition to DRRD implement the programme.’ Accordingly, he example of a CDC insisting on (and creating staff. For example, the DRRD highlighted the insufficient human the expectation for) an electricity project, in Bamyan had 40 staff of which resources of the indigenous institution but not appreciating that the government 28 were in permanent posts. compared to the supporting agencies. A key was unable to provide the service. They included: 5 engineers, source of this problem was the perception ACKU1 advisor, programme staff, of poor wage-levels in a competitive market, A third weakness, as raised in Balkh, computer operators, and which caused more qualified staff to move Badghis, Kundoz, and Takhar was institu- radio operator. In Badghis, the to international organizations. This was tional jealousy. For DRRD staff, this arose Department was supposed to exemplified by the DRRD Director in Paktia from the frustration of wanting, though have 40 staff but only had 31. who emphasized the difficulty in recruiting being unable, to manage the Programme Herat had 40 staff out of 41 qualified staff, while employees in Kabul alone. For example, DRRD staff praised the available full-time positions, with estimated that the OC does the same job FPs but often felt sidelined and unappreci- 20 others paid on a daily basis. but earns ‘five times their salary’.13 In ated by the communities. The latter was par- Kabul and Paktika both had 28 addition to these human resource ticularly acute in Kundoz, where the DRRD established staff each as well as problems, there was consensus that the department felt excluded by both the OC contracted staff. This included: high number of projects had reduced the and the FP. 1 construction engineer, quality of the work, as emphasized in 2 water supply engineers Paktika and Balkh. Cooperation with and 1 hygiene specialist. other government departments Inadequate operational resources were also Cooperation with other government a recurring complaint and considered a departments was consistently valued as an FINDINGS AND direct constraint on capacity. This included important strength. Hence building on RECOMMENDATIONS

42 existing horizontal and vertical institutional produce closer interaction and better linkages should be considered an opportu- understanding and working relations nity to further capacity and alleviate strains between communities and the different in the delivery system. In demonstrating the layers of the government. former, Badghis recalled attempts to cooperate with the departments of Nevertheless, DRRD respondents over- Agriculture and Health by conducting joint whelmingly stated that institutional learning site visits. Similar stories were told in Balkh was severely restricted. This deficiency and Herat (Education and Health for needs stemmed from the shortfalls in resources assessments; and Energy for project (number of staff and level of qualified approval, respectively). The sharing of training, in addition to physical resources), transport and sectoral coordination meet- as detailed above. While claiming to do their ings with the departments of Education and best, district DRRD staff in Balk noted that Agriculture were described in Kabul and ‘although the NSP projects involve con- Paktia. In Kundoz, respondents pointed to a struction we do not have full engineers, ‘joint commission for emergency response’, only an assistant engineer, an economist which was considered to have a positive and an agriculturalist’. NSP staff in Kabul impact on the NSP. In demonstrating the thought that even the combined DRRD/OC vertical element, the DRRD in Nangarhar team was not sufficient to monitor the was also keen to integrate programme ini- existing 324 projects, never mind the tiatives further, since it appreciated the further 608 just passed. Similarly, it was already improved contact between the claimed that only two out of the 41 DRRD provincial and district levels of government. staff assisted in monitoring the projects and checking the proposals. Similar difficulties However, inter-departmental coordination were relayed in Paktika. was clearly undeveloped, especially in terms of improving project implementation. Flaws in programme design Despite the optimism in Nangarhar, the FP, Firstly, (provincial and district) staff in Balkh OC and CDCs reported a pattern of DRRD and Kabul, in addition to the Provincial inertia. Some of the DRRDs’ perceived Governor of Balkh, emphasized the need to inaction of other government departments, review the restriction in the budget alloca- as voiced in Paktika, forms a second tion of US $60,000 for 300 families. This was obstacle to cooperation. Thirdly, it was because in practice projects with a budget claimed that delays and misunderstandings allocation for 300 families were being used emerged from clashes in departmental by more beneficiaries. This was deemed to bureaucracies and procedures, as exempli- occur for two reasons – large villages were fied by the failed attempts to work with the prevented from splitting into two or more Department of Energy in Balkh and Kabul. by the NSP, and villages where original estimates of population made by the NSP Institutional learning subsequently increased through the return Institutional learning and monitoring and of IDPs and refugees. In particular, some evaluation are essential to consolidating and feared that strains on projects would prove furthering the NSP’s progress, and together a catalyst to intra-community conflict. they formACKU an important provision within the Programme. For example, staff in Bamyan Secondly, DRRD representatives in Balkh, described how they and the FP undertook Kabul, Paktia and Paktika all raised the sig- the documentary process to select projects nificant operational problem of delays in the before being processed by the OC. NSP and transfer and release of NSP instalments. DRRD staff also referred to the use of joint Most seriously, the delays were blamed for monitoring programmes, quarterly reviews damage caused to the quality of projects; for and transparency checks on CDC financial example, where the building of infrastruc- management with the OC and FP. Bamyan ture could not be completed before winter. and Kabul staff listed election observation, and regular meetings and workshops to Thirdly, in Balkh and Nangarhar, there was promote community participation in main- strong support for an increase in the tenance. In Kundoz, it was asserted that coverage of the NSP in each province. issues and problems raised during the implementation of the projects were always Fourthly, as a weakness in the NSP’s aims referred to the district government and, if and objectives, the Provincial Governor in SECTION 3: not solved, to the provincial and central Kabul asserted that the sustainability of SUB-NATIONAL LEVEL governments. This process was claimed to projects was not given enough consideration.

43 Finally, the Provincial Director of the NSP While the official complaints advocated the urgency for the DRRD to procedure was used, the approach to explain more about the goals of the second its implementation varied considerably, phase of the Programme. to the extent that it risked disappearing in some provinces. This is especially This sub-section identified two main oppor- worrying considering the natural tunities for long-term capacity develop- barriers to establishing transparency ment: the practice of harnessing the and accountability in the context combined resources from horizontal and of a war-ravaged State. vertical institutional linkages; and the There is a need to reconcile conflicting inherent scope for institutional learning. models of governance, both at the However, long-term institutional capacity community and programme design development will also face several barriers, level. which are all characterized by two types of Similarly, the question of sustainability discord: between Programme expectations (CDCs and projects) should also be or institutional ambitions and actual addressed at both levels. Regardless of resources; and between government and previously stated aims and objectives community approaches to governance and and as a minimum, it is essential to development. recognize that the NSP (to its credit) is progressively creating an expectation for sustainable development in villages. Summary This expectation was voiced above by The fundamental strength of the above government representatives and is findings is that they provide a frank assess- echoed by other relevant actors down ment of progress in NSP management by to the communities. This expectation those responsible for delivering the needs to be addressed and tackled Programme. We must begin this summary either as a matter of defence but, by firstly recognizing the achievements of more preferably, as a pragmatic step the NSP. According to the DRRD respon- towards greater poverty reduction. dents and the provincial governors, the NSP In recognizing the values of fair has significantly improved the relationship representation, inclusion and legitimate between the participating communities and authority, the role of women in the the government, in addition to creating decision-making processes needs stronger intra and inter-community to be advanced to ensure that their relations to the extent that cases of conflict development needs are protected. management emerged. There was also Greater efficiency and effectiveness evidence of initial steps being taken towards would be gained by improving community empowerment. In explaining cooperation between government these developments, the government repre- departments with a focus on sentatives overall could rely on develop- coordination. This would create a ment experience from the NSP and within complementary dimension to the the wider national policy framework. NSP, consisting of a more strategic Furthermore, there were several instances set of interrelationships between of institutional cooperation and some ACKUthe programme and other national evidence of institutional learning in programmes, with the goal of practice. large-scale development programming. This dimension would need to avoid However, the following significant deficien- duplication and address the different cies and threats also emerged from the financing and implementation analysis, which in turn prompt some recom- modalities that might hamper close mendations at the end of Section 3: cooperation in order to meet broader development goals. As a minimum, it is The cap on the budget allocation important for government departments (‘regardless of the number of real to have accurate information concerning beneficiaries’) was causing significant the responsibilities and operational tasks distress within the Programme and of their counterparts to avoid confusion risks causing rivalry and grievance. or jealousy. There was considerable frustration with Operational and human resources delays in the transference of funds from proved weak and uneven. The the OC to the communities, which recommendations above would FINDINGS AND needs to be continuously reviewed. help to alleviate such strains. RECOMMENDATIONS

44 Institutional learning and monitoring of NSP management as the provincial and and evaluation also proved uneven. district DRRD staff. While this stemmed from weaknesses in resources and training (see below), there was also the need to instil Perceptions of the impact of the a standardized set of procedures NSP on rural communities and checks and to ensure these The nature of the NSP impact on rural com- are adhered to. munities was assessed to be generally NSP training was equally patchy in its positive and largely rests on the perception nature and style. Greater efforts should of an increase in national solidarity. An be made to ensure greater consistency improved relationship between the NSP and effectiveness, with particular communities and the Afghan government, emphasis on making technical skills arising from the attractive values ascribed to training more widely available. the NSP process, is observed although both organized and ad hoc opposition was also noted. Similarly, respondents identified a shift towards stronger community relations 3.2 Sub-national level coordination through the incentives provided by NSP and operational delivery of the NSP projects. Nevertheless, this positive impact – the provincial OCs and teams may prove ephemeral, depending on the NSP’s ability to meet the challenges to the The main challenge for the provincial OCs empowerment of CDCs in general, and the and teams, in protecting and strengthening particular problems experienced by the advancement of the NSP, is to supervise women’s CDCs. the management of the Programme while simultaneously developing the capacity of The relationship between NSP DRRD staff to assume operational delivery communities and government responsibilities. While these two tasks are The OCs and teams asserted that the NSP laudable and have achieved some progress, had improved the relationship between the there is an inherent tension between them. participating communities and the govern- That is, the first task concentrates on ment considerably. It was believed that this making sure that short-term targets are met effect stemmed from the opportunity for efficiently, while the latter involves longer- communities to assume local authority and term aspirations. The main aim of this responsibility. In particular, practical incen- analysis is to highlight some of the salient tives involved the participatory, bottom-up outcomes from this tension. and democratic process of defining needs and deciding priorities (Herat, Nangarhar, This analysis of the provincial OCs and and Paktika etc). For example, in Badghis teams first reviews the improved relation- and Kabul, the popular enthusiasm to ship between the NSP participating commu- implement projects was noted, and it was nities and the Afghan government. The asserted that people sometimes con- second sub-section establishes the potential tributed more than the basic 10 per cent. sources for long-term staff and institutional The OCs in Balkh and Kundoz concurred capacityACKU development. This analysis and further claimed an improvement in the concludes by identifying the main achieve- standard of living for some communities. ments and strengths, in addition to deficiencies and threats to the role of the OC. In addition, the common perception that The latter are matched by a set of specific the CDCs were democratic was held as the recommendations. key reason for their legitimacy. The OCs also found that the CDCs complemented the tra- In keeping with the previous section, this ditional shuras’ local governance in general, analysis is partly based on a self-evaluation while introducing welcomed values such as by provincial OCs and teams, and is transparency, accountability and representa- therefore particularly relevant since it artic- tive leadership. The CDC was similarly ulates their views on potential areas of welcomed in Bamyam, but because there programme enhancement. It is further was no traditional shura. argued that these views are representative of the wider national dimension because However, opposition to the NSP was noted OCs in nine provinces were interviewed. In and this can be understood in two ways. SECTION 3: general, the provincial OCs and teams Firstly, in Badghis there was deliberate or SUB-NATIONAL LEVEL shared the same concerns and assessments direct opposition from armed groups

45 because the NSP threatened vested Evidence of community empowerment interests. In another case, a mullah The NSP’s determined drive for capacity preached that the NSP was ‘unIslamic’. development was seen as the central oppor- Secondly, there was accidental or indirect tunity for the empowerment of communi- opposition stemming from weaknesses in ties. The OCs perceived this development security through the ongoing low-intensity and the Programme’s long-term potential to conflict and the sensitivity surrounding the be based on its new approach to funding, poppy industry. Nangarhar, especially its the people’s increase in knowledge and more mountainous areas, exemplified this skills through participation, and the official type of opposition. recognition of the CDCs (Balkh, Herat, Kabul, and Nangarhar). Nevertheless, the Inter- and intra-community relations inability to ameliorate weak capacities at the The provincial OCs and teams described community level created significant stronger community relations within partic- obstacles to empowerment (see Box 5). ipating communities, which was commonly characterized by the perception of greater unity. There were also some examples of Box 5. conflict resolution, from between families in Weak community capacities Herat to between armed groups in Kabul. in Nangarhar The OC in Nangarhar emphasized funda- In addition, the OCs found evidence of mental weaknesses in the capacities of the some solidarity between villages where joint CDC members and communities in general projects had pulled people together based as a crucial challenge to the process of on tangible incentives (Box 4 below illus- empowerment. Accordingly, and as echoed trates how and why this occurred). by the OC in Paktika, illiteracy, other shortfalls in education and tight timeframes typically resulted in a weak grasp of the Box 4. Programme’s purpose and procedures, and Villages unified in Balkh cast doubt on the levels of substantive par- The Balkh OC and team referred to the ticipation in terms of identifying priorities example of the village(s) of ‘Kashanda and submitting a CDP. It was also attributed Chakinah, where 13 CDCs reconstructed a to the creation of confusion and false hope. 50 km road costing US $240,000’. There Moreover, it was felt that the insufficient were two significant impacts: the project capacities and their implications for was decided and implemented (‘in a proper empowerment were not addressed by the way’) by the community itself not an NGO. NSP. Consequently, the OC believed it was This was crucial as it meant, ‘the CDCs rep- common for the FP to shift from facilitating resented a break from the traditional shura to implementing. Specific recommenda- – a time when village elders and warlords tions included the need for more livelihood were all-powerful.’ Key to this development projects, payment for CDC members and was the ‘secret voting system, which lets improving the linkages between the actors people make their own choices’, thereby in the community empowerment process. granting ‘authority with responsibilities to ACKU the elected representatives’. For example, it was believed that ‘the CDC and its subcom- Building gender-equal capacities forms one mittees can now try to solve the problems of the most crucial elements of empower- of families’. Secondly, it meant the travelling ment. Progress was classified as slow overall time from Mazar was reduced from 21 to 7 based on the assessment of the provincial hours (OC and Team, 26 October 2005). OCs and teams (for example, see Badghis and Kabul provincial field reports). The two main areas of concern were insufficient par- Not all of the provincial OCs reported ticipation in the processes of community stronger intra and inter-community decision-making and project implementa- relations in their respective provinces. tion, and the limited allocation of project Furthermore, it was reported in Nangarhar funds for women. Despite the targets pre- that envy between non-participating and scribed by the Operational Manual, slow NSP villages had resulted in conflict in some progress was attributed either to cultural districts. opposition and suspicion from communities (Nangarhar) and/or insufficient impetus FINDINGS AND from the NSP actors (Balkh). In the latter RECOMMENDATIONS

46 province, the OC estimated that only the The potential sources for small (under US $3000) and non-sustainable long-term DRRD staff and projects for women were accepted by the institutional capacity development communities. Based on these challenges, An analysis of the key strengths and weak- the OCs commonly referred to using a grad- nesses in programme management, as ualist approach towards greater inclusion. perceived by the OCs and teams, reveals the However, there was equal concern that this potential sources for long-term staff and approach was at odds with the time con- institutional capacity-development. In straints of the Programme. addition, the analysis presents the strengths and weaknesses of the OC’s supervisory Whether women and men’s CDCs ought to and capacity-development role. The weak- be mixed or remain separate was a recurring nesses included the tendency for some OCs dilemma for the OCs. Since the underlying to adopt a more managerial function: the theme of the NSP is cooperation, interac- lack of systematic capacity development; tion and the building of social capital, then the inadequate capacity of the DRRDs, espe- the integration of CDCs may be the ideal cially in terms of coordination; and the arrangement. Of course, the main conclu- unrealistic timeframe for the OCs’ exit sion is that approaches to integration and strategy. Despite the positive response to such targets must be tailored to the cultural the eligibility criteria, two key programme mores and capacity levels within each design flaws were noted. province, district and community. For example, the OC in Balkh was confident that Inconsistent perception of the integration of rural-based CDCs would the role of the provincial OC occur in 4–5 years, with evidence of some While the OCs and teams conveyed a already mixed.14 Conversely, the Nangarhar confident understanding of their role in the OC was less optimistic and deemed equal NSP, this role varied significantly between participation to be impossible in the eastern provinces in two main ways. Often the areas of the Province. Moreover, it can be division appeared blurred between super- argued that integration is important and vising the management of the Programme may be necessary, but this dilemma should and actual management. For example, the not mask the real need: building the actual Balkh OC and team defined their role as, capacities and skills of women in the com- ‘giving technical advice, transferring money munities to enable proper participation in to the CDC’, in addition to ‘controlling the decision-making and project implementa- management of the overall programme’ tion in addition to access to project funds. It (OC and Team, 26 October 2005). The OCs is prudent to consider that the latter in Bamyan and Kundoz also described a represent more reliable indicators for more involved role and, in Badghis, the OC empowerment rather than the integration and team presented their role in terms of of CDCs, which can be easily feigned for the direct implementation to the point of outsider. making themselves indispensable to the continuation of the NSP in the province. In sum, the OCs and teams attributed a positive impact on the communities partici- Conversely, in Herat, Nangarhar, Paktika, pating ACKUin the NSP. However, opposition to and Takhar, the OCs denied any involve- the NSP was also a cross-cutting concern. ment in the management of the Evidence for this already existed in deliber- Programme, and each described their role ate and accidental forms, including the as monitoring the projects, providing instances of conflict from envious non-par- technical advice, advising other stakehold- ticipating villages. Furthermore, the inability ers, and ensuring there is coordination and to respond to the low levels of skills and cooperation. Similarly, the Kabul OC capacities prevented empowerment, and believed the management of the NSP was risked creating confusion and false hope. In well coordinated between the three imple- compounding this, the failure to ensure the menting agencies (DRRD, FP and OC), 14 The respondent noted that satisfactory inclusion of women represented which worked as a team. Accordingly, the the villages close to Mazar had additional resistance, if not obstruction, of supervisory role consisted of regular field more mixed CDCs (OC and the Programme’s core aim and objectives. It visits involving scrutiny of the documenta- Te am, 9 November 2005). is now appropriate to establish the OC’s tion and project proposals before being assessment of the DRRD’s management forwarded to central office. However, it was capacity. thought that this level of supervision had SECTION 3: decreased as the number of projects and SUB-NATIONAL LEVEL proposals increased.

47 The second function of the OCs’ role was to develop the institutional and staff capacities Box 6. of the DRRDs. In Balkh, Herat, Kabul, An integrated approach to DRRD Kundoz, Nangarhar, Paktika, and Takhar capacity development in Kabul there was evidence of clear cooperation There was a conscious effort to build the between each OC and DRRD, with a delib- capacity of DRRD staff in Kabul by the OC erate effort to build capacities (see Box 6 through the joint supervision and monitor- below). For example, in Balkh, the respon- ing of the projects. The FP (SDF) also con- dents noted the principle of always having tributed crucial peacebuilding and problem ‘two-way communication during training’ analysis methodologies, as well as an and during the weekly meetings. Key understanding (as a national NGO) of the themes were finance, M&E and engineering. culture and moral beliefs of the communi- The Takhar OC had developed an evaluation ties. This enabled greater inclusion of form to assess the training needs of the staff interest groups, with the harnessing of pre- and followed this with workshops, but little existing leadership as an important feature. progress was noted. In Nangarhar, a long- These efforts were further complemented term training programme had been intro- by the provision of practical and political duced for the DRRD to focus on all aspects support by district governors. Overall, it of the NSP. However, it was felt that there was asserted that all parties shared a was too much emphasis on the technical common understanding and enthusiasm aspects and on rural infrastructure at the for the NSP aims and concept, which expense of community development, included the active involvement of the income generation, microfinance and liveli- DRRD Director. This unified approach was hood development. Despite claiming a credited with the creation of tangible close relationship, the Badghis OC did not results in terms of governance and mention any involvement in the capacity community development. For the latter, development of the DRRD. Therefore, the this consisted of the quality of the projects prospect of the DRRD assuming even an in terms of their design, relevance and con- equal role was remote. While the Bamyan struction, as well as their sustainability in OC worked closely with the DRRD there terms of maintenance. In sum, capacity- was no evidence that it had provided such building was described as central to the role training. of oversight consultant and as the core activity of the Programme as a whole. Limited capacity of DRRD The majority of the OCs and teams overwhelmingly asserted that the capacity of their respective DRRD was inadequate because of the number of staff and level of In Nangarhar, the OC noted that the staff expertise, especially in terms of technical management capacity varied, but overall staff to supervise projects in the field. This there was willingness at the provincial level assessment was relevant in provinces, but little capacity to manage the NSP, while whether the role of the OC was managerial the district level was nonexistent in this or supervisory, a builder of capacities or not. sense. The OC and team in Balkh and Herat For example, the Badghis OC emphasized ACKUwere satisfied with the management 15 Based on the data collected, the DRRD’s lack of professional, qualified capacity of the DRRD, and the former the OC teams in each province staff and the NSP Manager’s inadequate believed they were engaged in an active varied between 4–7 staff. For level of education. In completing the vicious learning process involving ‘engineers example, in Balkh, the team circle, this OC blamed the DRRD’s lack of gaining field practice in the NSP, especially consisted of an engineer, capacity as the reason for not being able to in terms of monitoring and evaluation’.15 NSP/OC clerk, a data handler develop capacity systematically. However, it was noted that the lack of (woman), a monitor (woman), technical staff was a crucial restriction. The an M&E specialist, an accountant In turn this was also the OC’s justification Bamyan and Takhar OCs pinpointed a and two other local staff. for assuming full operational control of the similar lack of resources in addition to inad- In Kabul, the operational Programme, although importance was given equate development expertise. The main team consisted of 1 engineer, to developing the capacity of the FP outcome of this weakness was poor coordi- 2 monitors, and 1 through training and direct supervision and nation of the provincial NSP actors (see documentation clerk. One to empowering and developing the capacity Balkh, Herat, Nangarhar, and Takhar provin- of these staff was a woman. of the CDC. While the DRRD was perhaps cial reports). However, it must be recog- informed, it was effectively marginalized nized that the pressure on the OC to meet because the arrangements failed to produce the Programme’s quantitative targets and FINDINGS AND a productive capacity-developing partner- deadlines was also a restricting factor. RECOMMENDATIONS ship.

48 All of the OCs (except Kabul) believed that Summary the proposed timeframe for the exit strategy The fundamental strength of these findings of the OC was unrealistic. However, alterna- is that they provide an honest and open tive timeframes varied from two years in assessment of progress in NSP management Paktika, to 8-10 years in Balkh. Kabul was by those responsible for delivering the the exception although the OC emphasized Programme. We must once again begin this the precondition of needing more staff in summary by firstly recognizing the achieve- order to match the expectation for ments of the NSP. According to the respon- expansion. Moreover, the OCs in Kabul and dents, the NSP has significantly improved Nangarhar asserted that this deadline the relationship between the participating reflected the lack of long-term planning and communities and the government, in direction within the Programme. Both addition to creating stronger intra- and perceived this to stunt performance, for inter-community relations. However, the example, towards the capacity development findings also identify some concerns: of communities and DRRDs. the skills and capacities of community Programme design members were lower than the level All the OCs and teams considered the appli- assumed by the Programme to reach cation of the eligibility criteria to be a its targets; positive feature of the Programme and progress was slow in gender-equal believed that most projects complied. participation and the debate concerning Nevertheless, the first flaw was the delays in CDC integration risked the masking the transfer and disbursement of funds, of real needs; which was experienced by all the OCs there was a risk of institutional except in Kundoz, and to a degree in dependency because the OCs struggled Paktika. Four weaknesses of varying impact both to develop the capacity of the were defined: the DAB for late disburse- DRRDs (which was particularly weak ment; the OC headquarters for their failure in terms of staff numbers and expertise) to renew proposals efficiently; the FP for while ensuring that the Programme sometimes sending late requests for second advanced. In sum, capacity development instalments; and miscellaneous bureau- needed to be made relevant to cratic errors. However, there was optimism the implementation environment that this set of flaws would be corrected by and the rationale of the NSP; and the new electronic tracking system. the budget cap remained a significant and unaddressed programme flaw. The second flaw was the project budget cap While this demanded specific attention of US $60,000/300 families, which meant from the NSP, budget shortfalls for that project budgets sometimes did not projects might be tackled by links to reflect the actual number of beneficiaries. other international donor programmes. Consequently, projects were susceptible to overuse and needs were not adequately met (see Balkh and Nangarhar provincial field reports). 3.3 The role of the Facilitating ACKUPartners in NSP coordination and In sum, further staff and institutional operational delivery capacity development centres on the practical limitations of the OCs’ role of FPs and NSP/OC lack qualified staff having to supervise NSP management and to support income generating activities. build the capacities of the managers. Both We believe that such activities should be roles could not be performed effectively. encouraged in Phase 2 and that suitably Moreover, the capacity of the DRRD (staff qualified staff should be appointed, and quality of staff) was clearly not benefit- i.e. this will need an HR strategy. ing from this level of capacity development. (FP Stakeholder) As a consequence, the timeframe for the exit strategy of the OC was judged unrealis- FPs were selected and in some cases tic. Last, there was a positive reaction to the operational before NSP/OC was eligibility criteria but the Programme was contracted by the government…this flawed in releasing the funds to the CDCs, has severely hampered NSP/OC’s ability and the budget restriction meant some to monitor the performance of FPs. SECTION 3: projects were disproportionate to needs. (OC Stakeholder) SUB-NATIONAL LEVEL

49 Table 1. The operations of NSP Facilitating Partners

FP Province Sub-Projects Block Grant Research Completed Disbursements for the (Afs) Evaluation

AKDN, ACTED, Afghan Aid Badakhshan 0 107,255,946 BRAC, DACAAR Badghis 20 132,139,511 X ACTED, AKDN Baghlan 33 114,826,805 CHA, UN-HABITAT Balkh 40 277,588,719 X AKDN, UN-HABITAT Bamyan 47 261,527,097 X Oxfam Day Kundi 23 101,752,908 UN-HABITAT Farah 193 287,673,313 ACTED Faryab 24 94,294,658 CARE, DACAAR Ghazni 119 241,782,469 Afghan Aid Ghor 40 118,775,568 BRAC Hilmand 170 228,368,554 UN-HABITAT, DACAAR Hirat 166 338,380,889 X ActionAid*, GAA Jawzjan 88 156,614,846 SDF Kabul 81 333,524,864 X UN-HABITAT Kandahar 179 283,918,559 UN-HABITAT Kapisa 66 276,484451 IRC Khost 89 188,129,127 Madera Kunar 0 168,147,988 ACTED, GRSP Kunduz 51 220,574,538 X Madera, DACAAR Laghman 66 150,631,502 X IRC Logar 70 221,848,526 BRAC Nangarhar 103 207,739,408 X Ockenden International Nimroz 148 66,081,563 Afghan Aid, Madera Nuristan 0 39,877,079 BRAC Paktika 326 258,658,970 X DACAAR, PIN, CARE* Pakyta 57 189,829,632 UN-HABITAT Panjsher 16 164,586,986 UN-HABITAT, AKDN Parwan ACKU107 226,442,956 Afghan Aid, BRAC Samangan 78 201,875,668 GAA, ACTED, CONCERN Sari Pul 6 192,901,367 ACTED, CONCERN Takhar 68 167,372,847 X ADA Uruzgan 0 0 SCA Wardak 52 259,861,025 ADA Zabul 69 34,439,190 Totals 2,617 6,314,007,527

Source: NSP Implementation Progress as of September 30, 2005, NSP Oversight Consultant. * Kabul level research only, with CARE and ActionAid.

FINDINGS AND RECOMMENDATIONS

50 The Afghanistan Ministry of Rural figures do not provide a clear and fair appre- Rehabilitation and Development (MRRD) ciation of the field work conducted by FPs has currently contracted 19 non-govern- as well as the sustainability of the CDC mental organizations (NGOs) to facilitate projects delivered. Nor do they inform our the delivery of the National Solidarity understanding of the strengths and weak- Programme in selected districts/provinces nesses, best practices, and issues to be of Afghanistan. The NGOs are the addressed. This qualitative information is Facilitating Partners (FPs) of the NSP. Table 1 also essential for the OC/MRRC when it shows the FPs, their provinces of operation, comes to preparing the next steps of the the number of sub-projects completed and Programme.17 the amount of Block Grant disbursements as of 30 September 2005. This evaluation provides further confirma- tion of a common observation throughout The research for the evaluation was under- our surveys that the absence of consistent taken with 11 FPs in 13 different areas across and coherent NSP methodology and docu- Afghanistan. Six teams, consisting of 4 mentation creates serious delays in the members each, carried out the research process of operational delivery.18 Many of amongst the FPs in the following locations: the FPs complain of the ever-changing Kabul (SDF), Bamyan (AKDN and UN- requirements and their difficulty in keeping HABITAT), Herat, (UN-HABITAT), Balkh up with the changes. Hence it is crucial that (CHA), Nangahar (BRAC), Badghis (BRAC), any changes to the NSP Operational Paktika (BRAC), Laghman (DACAAR and Manual factors in the costs of implementa- Maderia), Kundoz (GRSP) and Takhar tion. Indeed, a risk assessment should be (Concern). In addition Kabul level research concluded before deciding to introduce was undertaken for CARE and ActionAid. A changes. The eligibility criteria and flexibility list of the stakeholders interviewed can be of projects was not found to be as rigid as found in Annex C. reported in the Altai study. However, FPs still feel constrained by the amount of Following the agreed Terms of Reference, paperwork required for multi-CDC projects, this section sets out to evaluate: the role of and there is a general feeling that the OCs the FPs within the NSP; FP capacity and the do not appreciate the specific local NSP; community participation; and the dynamics of their operations. effectiveness, efficiency and relevance of the 16 The final recommendations FPs’ work. The Altai Assessment of the FPs As identified in other sections of this report, identified by Altai 2004:8/10 (Common Final Report II, August 2004) will programme coordination with other gov- identified the need for: be used as a source of comparative evalua- ernmental bodies at the national, provincial subsequent assessment of the tion on the work of FPs.16 However, this is and local levels is essential to the long-term FPs to take into consideration not an evaluation of individual FPs; it would sustainability of the NSP. This would enable more qualitative aspects; be unrealistic to compare relative the FPs to operate with more confidence structural concerns commonly ‘successes’ or ‘failures’ across such a diverse and certainty and to integrate their work shared between FPs and villages and challenging setting as Afghanistan. with other initiatives being undertaken.19 to be taken into account by Hence Table 1 does not break down individ- Moreover, in keeping with the Altai findings the OC/MRRD; implementation ual targets attained by various FPs. This (2004, 10), there exists a strong view that planning to be reconsidered; sectionACKU on the role of FPs in NSP coordina- the long term strategy of NSP should be eligibility criteria and flexibility tion inevitably has many linkages with the shared with FPs. Indeed, there continues to of projects to be reconsidered; analysis of the MRRD/OC and the CDCs. be a high level of uncertainty regarding the improved coordination with Hence many of the implications of these direction of NSP. The above points are other governmental bodies; findings are discussed in greater detail in discussed in further detail in the ensuing sharing the long-term strategy other parts of the report. sub-sections of the report. with other FPs; and sharing experience with other FPs. This evaluation attempts to give more weight to the qualitative aspects of the FPs’ The role of the FPs within the NSP 17 See: Altai 2004, 8–10. work which helps to contextualize their – the ‘bridge’ between the operating environment and give indications government and the community 18 See Altai 2004, 9–10. as to the capacity and sustainability of CDCs. Research with the FPs and amongst the The findings presented here will go some CDCs highlights that the FPs understand 19 See Altai, 2004, p.10. way towards mitigating the fact that ‘many their role within the NSP as identified in the FPs currently fear that MRRD only check Manual. their data and thus does not sufficiently SECTION 3: consider the qualitative and long term All the FPs see their role as facilitating SUB-NATIONAL LEVEL aspects they try to implement’ (NSP FP different aspects of community develop- stakeholder). Furthermore, the quantitative ment, by enabling people to come together

51 to identify priorities, develop proposals and government programme. Feedback from then implement the projects. As the some FPs, notably BRAC in Nangarhar, and Director of BRAC states ‘[W]e help the Paktika and GRSP in Kundoz, highlighted people to develop capacity within their that at first people did not believe that the communities to help them get to a position government was working for them through where a project can be implemented and the NGOs because in the past any develop- sustained.’20 Whilst the Provincial Director mental work was implemented by NGOs of UN-HABITAT described their role ‘as a and did not involve the government. In bridge between the government and the some project sites visited there are signs people to explain the NSP system to the and NSP literature emphasizing and community, conduct training, bring the promoting the role of the government as hardware, guide the identification of needs distinct from that of the FP. and priorities and help the CDCs prepare their CDPs’.21 The Executive Director of The role of the FP as a facilitator of a gov- SDF referred to his role as, ‘the promotion ernment programme is also highlighted of advocacy from people to government and when government officials periodically visit from government to people and capacity the communities to reinforce the govern- development.’22 ment’s overall role within the Programme. In addition the projects are inaugurated and These perceptions of the NSP and the role training certificates are always distributed by of the FP within the Programme were not government officials and not the FPs. just held by those in the higher echelons of the FPs, but seemed to transcend to the The ‘NSP Awareness’ recommendations district level. For example, CHA Provincial from the Altai Assessment have a relevance staff in Balkh described the role of their for improving the role of the FPs. Altai NGO as a: (2004, 3–10) found that the FPs must be given clear objectives in terms of training …bridge for relations between the and communication to make sure that the shura and government, since through communities know about the role of the FP them the community can contact the within the NSP. All the research undertaken government and vice versa and that by the PRDU indicates that both the FPs and the [newly created] CDCs were very the communities were clear that the NSP happy the first time we came and was a government programme. In addition, they think of us as their advisor.23 the recommendation for a ‘simple and clear message emphasizing the government’s District managers of BRAC in Badghis24 role in NSP to be disseminated to all levels’ highlighted how they continually explained also appears to be working. The need for their role as facilitators of a government ‘basic communication tools (posters, infor- programme to the communities. However, mation boards) to better brand the NSP at all the FPs, without exception, confirmed the village level and thus present the FP that at first it was difficult to win the trust of accordingly, i.e. a partner helping the com- the communities until they began to see munities to access a governmental, national visible changes as a result of the projects. programme’, has certainly been imple- 20 Director, BRAC, Their experience therefore confirms the ACKUmented in the majority of the communities 22 October 2005, Kabul. observations of the OC that the social devel- visited. opments of the Programme are achieved 21 UN-HABITAT Provincial through participation in the projects. Some However, other Altai recommendations are Director, 1 November 2005, of the FPs (such as UN-HABITAT) saw their yet to be fully realized. For example, there MeS. role in a more transitional sense and was little evidence that, ‘CDCs were being directed towards a situation where facilita- encouraged to create linkages with other 22 Executive Director SDF, tion between the CDCs and the government programmes and/or local initiatives’. Mohammed Raz Dilili, Kabul. was no longer necessary. It is also worth Moreover, whilst the NSP/MRRD-inspired noting that some of the FPs also view the CDC Jirga in August 2005 was highly suc- 23 CHA District Staff, 27 NSP as an entry point and institutional cessful, there is still room for greater initia- October 2005, MeS. framework for expanding their own tive sharing amongst the CDCs as enabled community development work through the FPs. The MRRD and other gov- 24 District Managers BRAC, ernment departments also have a responsi- Baghis. All the research indicated that the commu- bility to ensure better linkages between the nities know that the FPs work on behalf of CDCs and other development initiatives, the government. The FPs use social mobiliz- and there is only limited evidence of ‘joint FINDINGS AND ers to explain the NSP and their role within field sessions amongst the FPs and the RECOMMENDATIONS it to ensure that people are clear that it is a MRRD teams to transfer know-how’.

52 Top: The end result is frequently that the FPs Promoting NSP actually have to ‘do too much on behalf of through signage the communities’ to be able to meet the in Nangarhar. project requirements. It is not so much a question of having the choice of playing the right role as to being forced into a wrong Bottom: role. The sign for the BRAC office in In some of the areas researched, such as Jalalabad has Nangarhar, Pakita and Laghman, the FPs are been removed working in extremely trying conditions and from outside the are acutely vulnerable to events beyond building, further their control.25 In Nangarhar, for example, demonstrating the communities in Chaparhar, Achin and difficult operating Badakot Districts have accused BRAC of environment that informing ISAF where poppies are grown, many of the FPs or spying on behalf of the CIA. BRAC also experience. have to deal with night letters in Sorkhrod district. In May 2005, the BRAC offices in Jalalabad were attacked following the US soldiers’ desecration of the Koran in Guantanamo Bay, and staff have come under attack in the districts from IEDs. Although relations with the majority of the communities are good BRAC, like other FPs, feel acutely vulnerable to any external occurrence involving ISAF, and especially America.26

FP relations with MRRD/OC The research highlighted an uneven pattern of relations with the MRRD/OC. Many of the FPs and also the MRRD emphasized the need to build up the MRRD presence at the district level, not least to be able to continue the capacity development of the CDCs and The FPs interviewed have played a major to undertake monitoring. However, this role in the CDC elections which appeared to should not mean that, a) another layer be an easier process than many had antici- should be added to the project approval pated. However, there is a major question and disbursement (and corruption) chain, mark as to what extent this has altered the and b) that capacity development should be power balance in the villages. A determining viewed from a political angle, especially factor forACKU the election, facilitation, training, from the other ministries who lack funding the need for technical assistance and ability for establishing ‘their’ district representa- to monitor is: a) the number of literate in tion. In addition, the local woluswals might 25 Another timely reminder of the village and their level of education, and see their power eroded, and thus care the difficult environment within b) facilitation and technical skills among FP should be taken when the system is estab- which the FPs operate is the staff. In both cases the challenge increases lished and presented to other parts of the current vulnerability of DACAAR with the remoteness of the NSP project government. As highlighted elsewhere, one in Laghman after the protests from major cities as literacy levels decrease, of the main concerns from this evaluation is in Mihtarlam (5th Feb 2006). and it is extremely difficult to recruit and that the provincial and district MRRD have keep staff in these locations. In addition, in little grasp of the practical aspects of the 26 The Nangarhar region, some areas the factual project period is only NSP and the problems and prescriptions and Jalalabad in particular, are the summer season as the areas are not required to ensure its effective day-to-day garrisoned by an American led accessible during the winter, increasing the running. ISAF force. challenge. FPs generally maintained that the NSP system is based on a rather inflexible At the Kabul level relations between the FP approach menu – written in English – where and the OC are good. The FP Windows Dept SECTION 3: possibly English skills become more oversees the contracting of the FPs and is SUB-NATIONAL LEVEL important to demonstrate towards the OC seen by many of the FPs as the initial depart- than the FPs’ technical skills. ment to which issues of concern are

53 brought. The OC in general is aware of all In general, relations between the regional the problems that the FPs have, and and provincial OCs and FPs were good, with acknowledge that many of the problems are the FPs seeing themselves as part of a coor- structural and due to the political nature of dinated team dedicated to delivering the the Programme, with its emphasis on Programme in often difficult circumstances. rollout. Most of the FPs appreciated the work of the OC and did not feel overly pressured by the At the provincial level, relations between OCs in terms of the actual day-to-day the FP and the DRRD are generally positive. decisions. However, some FPs are upset The DRRD/OC/FP usually meet on a weekly when comparisons are made between their basis to solve problems and make collective work and that of other FPs. BRAC for decisions. However the FPs, without example, concede that Nangarhar is not exception, consider the capacity of the comparing favourably to other provinces in provincial level MRRD to be weak. Although terms of the NSP; this they claim is because they have more resources than any other of poor security and the low receptive provincial ministry there remain significant capacity of the beneficiaries. In such cir- shortages of technical and physical cumstances some of the FPs feel that more resources. GRSP for example highlight that, practical support should be forthcoming in ‘If we talk about the OC as part of the MRRD terms of a more flexible timetable and extra in Kundoz then one can say that their allowances. capacity is good, but without the OC, MRRD capacity is like the other government The gap remains between the community departments – weak.’27 and local district government, but the contact between the community and At the district level, the FPs also consider provincial government has increased due to the MRRD to be weak. The MRRD often the NSP. Never before have the government does not have an office at the district level been so visible in communities, with and therefore contact between the physical reminders through projects, signs, community and local government is limited. workshops and meetings, etc that In some districts, the district personnel strengthen the link between communities have inadequate access to transport and a and provincial/national government. shortage of skilled staff. In Nangahar, for example, there are only two engineers to cover 5 districts. In addition, some FPs FP capacity to deliver the NSP complain that ‘new district governors Many of the FPs are international NGOs with require a great deal of time to be brought a proven track record of managing up to speed with the NSP.’28 This comment community development in different from GRSP in Takhar was typical: ‘the contexts, and many were already active in capacity of the MRRD at the district is weak, Afghanistan and implement other pro- there is just one vehicle and that is for the grammes as well as the NSP. BRAC for director. The rest of the staff are not allowed example manage a health care programme to use it to travel to project areas.’ In some across their areas of operation, AKDN provinces feedback from the FPs (which was manage rural development and education also confirmed by the CDCs), suggest that ACKUprogrammes, whilst Concern has an district administrators are more concerned extensive rural development programme, with security than development. Some of mainly in the north. The research amongst the FPs, notably BRAC and Maderia, cite this the national FPs such as GRSP, CHA and SDF as being a structural problem within all highlight how useful local knowledge was to Afghanistan, and as such supports the implement NSP based on their ongoing rationale for the newly created CDCs involvement with other programmes across 27 Director, GRSP, becoming the local government at the Afghanistan. November 2005, Kundoz. district level. Some of the FPs, such as BRAC in Nangahar and Maderia in Laghman, are The research found that to varying degrees 28 Regional Manager, BRAC, frustrated that when the district MRRD does the FPs possessed the capacity to manage October 28th, Nangarhar. deal with the CDC-elected representatives the NSP. Some FPs already possessed the within CDC communities, rather they only capacity to incorporate NSP into their 29 Team Leader, SDF, October consult the maliks and not CDC represen- portfolio of activities. BRAC, for example, 20th 2005, Kabul. tatives. The experience of SDF is slightly did not have to increase its capacity as such different as their proximity to the MRRD and to cope with the demands of the NSP, but the OC has meant that they ‘have not expe- had to tailor its resources from existing pro- FINDINGS AND rienced the problems we have heard about grammes. It did not have to recruit more RECOMMENDATIONS outside Kabul’.29

54 staff as they already had specific expertise in ‘to maintain efficiency when the number of relevant areas, e.g. engineering, livelihoods projects was high’. There was also a test for and project management.30 However, some all staff on applying the Operational of the FPs had to recruit additional staff. In Manual. order to take on the NSP in Bamyan, AKDN for example had to advertise and select SO UN-HABITAT’s history of developing the (Social Organizers) and CF (Community CFDO and in providing training material for Facilitators) in each district. AKDN is clearly the NSP meant that they started working on well resourced and pays a great deal of the NSP with extensive experience.33 CHA attention to staff recruitment and training, and UN-HABITAT district staff listed including a comparatively high number of training/workshops on the Operational women field staff. In the two AKDN districts Manual, proposal writing, monitoring, there are 9 women to 16 men. The 4 women book-keeping, finance, human rights, SOs working in Shibar were returned children’s rights, mine awareness, refugees from Iran, where they had some community development and the rule of experience of community work. If the law/constitution. The staff felt that the number of projects increases AKDN have training had been very useful.34 As an the capacity to expand and train the staff.31 example, a social mobilizer for UN-HABITAT AKDN’s field staff believe that their training explained how he was trained to gain and experience of completing one phase of proper access to a village for the first time: the Programme (in Surkpasa District) has equipped them with the skills they need to First, we contact the district head and tackle the second phase with confidence. ask them to invite the village leader to The key skills they cited were: establishing a meeting in the district office to explain relations with the community with cultural the NSP and our aims. If necessary, and social sensitivity, and knowledge of we will also move down the line of development. They had received training authority to find other key persons to on: NSP awareness, community mobiliza- secure permission. When we enter, we visit tion and clustering the communities. Other the elders at a small meeting and then we training related to identifying priorities for a have a community-wide gathering. development plan, and aspects of project (UN-HABITAT District Staff, 30 However, it is noted that the development, proposal implementation and 10 November 2005) OCs recommend that BRAC monitoring were also considered to be increase their staff capacity in useful. SDF has a Capacity-Building Department order to implement the NSP which designs and develops training and more efficiently; it is too soon to The consequences of local staff training can capacity-building for the communities. NSP say if this has been undertaken. be problematic for some of the FPs. As the staff are then trained in these methods BRAC NSP Manager states, ‘We have often before working with the communities. SDF 31 They are in fact waiting found that we spend a great deal of time acknowledge that they are fortunate, in for government approval to and money on training local staff who then Kabul, in being able to recruit staff with at establish 35 more shuras in promptly leave for better paid jobs within least secondary education and often Shibar, covering the most the NGO sector. We are philosophical about relevant experience. For many FPs, the remote communities, and this and acknowledge that at least our capacity development aspect of NSP is seen have started some surveys. trainingACKU is having a trickle-down effect so as the most important: ‘[W]e believe every- that in some way the country is benefiting’. thing we do with them (the CDCs) is a form 32 CHA Provincial Management Even though GRSP in Kunduz experience of capacity building’. It focusses on two Team, 26 October 2005, MeS. similar dilemmas they always try to ensure areas: participatory governance and being that there are experienced staff on the able to manage their projects. Implicit in 33 UN-HABITAT Provincial projects by ensuring teams are mixed with this belief is the need for trained and Director, 1 November 2005, newly trained personnel. capable staff to implement the Programme. Balkh. Other FPs, such as CHA, acknowledge that 34 CHA District Staff, they have had to develop their capacity, CDC training 27 October 2005; CHA District knowledge and skills through various The training of the CDCs is essential for the Staff, 8 November 2005; and training sessions and workshops conducted success of the NSP. There is a basic common UN-HABITAT District Staff, by themselves, OC and MRRD.32 District approach to training given by the FPs. The 10 November 2005. staff concur that they ‘had to learn more problems are first identified and different skills, use more social mobilizers and facili- training is then given to develop capacity as tators, and hire a technician to ensure we necessary for the election of the CDC, for- SECTION 3: kept to the regulations since it is a new mulation of the CDP and then the manage- SUB-NATIONAL LEVEL programme’. This was particularly crucial ment of the project. In the case of some

55 remote communities it has proved mine awareness and natural disaster man- necessary for FPs like AKDN and BRAC to agement. Training was also specific to suit organize and pay for exposure visits to take the particular functions of the CDC sub- the CDC members to neighbouring projects committees (for example, the role of (in one case to Kabul) to broaden their chairmen, secretary etc) and followed the 5 appreciation of NSP. NSP phases. Where possible, in Balkh, training was supplemented by the provision All the FPs echoed the belief of SDF that of satellite radios for the CDC to listen and ‘training and capacity-building are first of all learn from capacity development pro- essential to the process of establishing the grammes.35 CDC. Peacebuilding, based on Islamic principles, is key to opening the way for the The challenges for many FPs in training the Programme.’ This aspect of SDF’s and other CDCs vary between different places, hence FPs’ approach was referred to by all the it is unfair to compare FPs with SDF or UN- other stakeholders from MRRD to the CDC HABITAT. Many of the FPs complain that members and householders. It is clear that many of the CDC were unable to show a suf- this CDC training groundwork is an ficiently in-depth grasp of key aspects of the important factor in the success of the FPs NSP process such as purchasing, account- work. ing, completing forms and accounting without the help of the FP. This is not nec- SDF provides a good example of effective essarily due to poor training on the FP’s training for CDCs. SDF gives training in all behalf. Without exception these other FPs aspects of CDC functions, record keeping, cited that the main barriers to effective book-keeping and project management, as training are lack of time, especially when outlined in the Operational Manual. These introducing new ideas and skills to less functional aspects had clearly been thor- educated people.36 As established, the NSP oughly transferred to the CDC members in timeframe is very short for the FP to achieve the case of Kabul, where all the CDCs visited their objectives. The community members had a good understanding of the functions also have limited time as they have their of the CDC, the NSP Programme and the own business to attend to. So although FPs management of their projects. Documen- think, with justification, that their training tation of their activities and financial trans- programmes have been very successful, actions was also of a very high standard. The some have not been able to carry out the process was no doubt helped by the good whole of their training plan. This is to the standard of education of the CDC members detriment of the CDCs’ capacity to manage compared to other areas of the country. NSP and survive in the future without the FP. Altai (2004, 8/10) also recommend that SDF, like AKDN, have added other training proper training on accounting needs to be programmes to the basic NSP requirements, longer than previously forecast; several which they think are relevant and help the training sessions have to be considered with CDC to function effectively. These include: longer in-field mentorship. education, health, literacy, Islamic education and human rights awareness. The Altai Assessment (2004, 5/10) makes a Again it was clear from the respondents in ACKUnumber of training recommendations the communities that they had been which stipulate that the training should be exposed to these courses and found them completed in a timely manner and that FPs 35 CHA Provincial Management relevant. Problem analysis using a problem should provide CDCs with refresher training Team, 26 October 2005; CHA tree to discuss the communities’ needs and sessions at regular intervals. Although not District Staff, 27 October 2005; project options is another capacity develop- specifically referred to as ‘refresher’ and UN-HABITAT Provincial ment exercise that was seen to be effective courses, there was evidence from many FPs Director, 1 November 2005. in Godara and other CDCs. that retraining was conducted as the need dictated. However, this is done on an 36 The lack of time becomes Other FPs such as CHA and UN-HABITAT informal ad hoc basis and assumes that: a) even more critical when training emphasized their efforts to deliver adequate the CDCs have acknowledged that they is taking place towards the end training and believed that this proved need training, and b) the FP can give it. The of the allocated time FPs have effective for most CDC members. Such capacity of some FPs is so low that many been accorded to reach their capacity development initiatives ranged CDC members think they can process NSP, target numbers of CDCs. from teaching the general objectives of the but in reality they cannot. Programme to more specific instructions like budgeting, book-keeping and filing, Altai (2004, 5/10) recommends that the FINDINGS AND procurement, children’s rights awareness, most important training for CDC members RECOMMENDATIONS

56 Box 7. BRAC in Nangarhar The experience of BRAC bears testament to many of the issues identified. BRAC have organized training for NSP orientation (which clarifies the NSP, the role of the FPs, community representatives, etc), book-keeping, accountancy, procurement and project proposal writing. BRAC uses master trainers who receive their training from the resource centre in Kabul. The master trainers then train social organizers who in turn train the CDCs. This CDC training also includes operation and maintenance. Training on the whole is successful, but BRAC complain that often people ignore the training and do what they want. For example, BRAC will inform the people of the main characteristics that make a good CDC representative (honesty, functional literacy, etc) yet the community still ‘choose’ an illiterate warlord or former commander as CDC representative.

In terms of the skills required by BRAC employees working on the NSP, knowledge about NSP, communication skills, a positive attitude and a good technical grasp are all essential. Although BRAC acknowledge their weaknesses, especially the inadequate number of engineers, their difficulty understanding the Technical Manual and the confusing technical guidelines for engineers (form 7), they nonetheless feel they have the capacity to run the NSP, but would appreciate greater technical training input for specific NSP projects.

BRAC originally received NSP training from UN-HABITAT and the OC training department. The training mainly concerned the five steps to NSP, engineering and irrigation principles, interpretation of the Technical Manual and other NSP guidelines such as procurement and proposal writing. All this training has proved very useful for BRAC to facilitate the NSP. However, much of the training does not benefit all the people who require training. The OC only allow two people from the FP to be trained, yet BRAC is operating in 5 provinces across the country and does not have the time to train others whilst simultaneously rolling out projects. In addition a BRAC engineer stated: ‘[T]he main training problem for us is that the procurement policy is designed in Washington and bears no reality to conditions here in Nangarhar. Even BRAC with all our expertise and resources find it extremely difficult to get CDCs to understand the procurement policy and accounting guidelines!’ Regardless of where the procurement guidelines originate, it remains a complex procedure with which BRAC struggle. In addition, training the CDCs to complete sub-project proposal forms is also very difficult, as one member of BRAC stated: ‘the CDCs are constantly asking for our help with the sub-project completion form, we show them, yet still they ask because their capacity is so low, what will happen when we (BRAC) leave? They will not be able to cope.’

is on accounting and book-keeping. This Altai (2004, 7/10) also recommended that in should be completed before the disburse- order to solve the engineering shortage ment of Block Grants and refreshed at each various possibilities, including recruitment phase ofACKU the implementation. This evalua- from Tajikistan, the creation of an ‘NSP tion endorses Altai’s recommendation but University’ and a loyalty grant on top of the adds that whilst training for book-keeping engineers’ salary, should be pursued. This and accounting is conducted before the dis- research has not seen any evidence of these bursement of the Block Grant, it is not initiatives being undertaken. always refreshed at the other stages for the reasons highlighted above. This evaluation also agrees with Altais’ (2004, 5/10) recom- Community participation mendation that intensive CDC training Arguably the most essential role of the FPs is should start after project approval as this to generate a representative level of will ensure better assimilation considering community participation; this firstly the existence of direct practices of training includes community sensitization to the points. However, in some cases CDC NSP, and then mobilization to enable the training has begun, the projects approval community to vote for CDCs. The chal- has been delayed and there is no practical lenges inherent in this process are many – application for recently trained CDC high levels of illiteracy, cultural barriers, SECTION 3: members to apply themselves, and the geographical constraints etc. This sub- SUB-NATIONAL LEVEL training and momentum is lost. section will outline the role of FPs in

57 encouraging general participation, and the Many of the FPs used innovative salutations participation of women in particular. in ‘marketing’ the NSP to communities. SDF in Kabul set up peacebuilding workshops as In the majority of cases there was initial the first step in establishing the CDC to resistance to participation in the NSP; some ensure that all sections of the community FPs ascribed this to people’s ‘low level of participated from the start. The field staff education’ (awareness?). In some areas, and CDC members interviewed explained Badghis for example, different groups found that the former traditional council leaders it difficult to participate in the CDC because are generally included in the CDC in some of long-standing enmities and conflicts, way (on committees etc.), if not actually until proportional representation was nego- elected. Occasionally a CDC head proves tiated. Influential individuals whose power unacceptable to one part of the community was challenged by elected CDC also tried to and the conflict has to be resolved in ensure these divisions remained. In Jawand, another workshop. religious leaders also resisted the Programme as ‘infidel’ and ‘anti-Islam’. In The participation of vulnerable groups Paktika, there were participation problems (excluding women – see section below) is experienced at the beginning in 2003. mixed. In Nangarhar, for example, most of Community members thought that the NSP the projects have a component for a per- was ‘an American trick to trap them’. centage of vulnerable people who must benefit (whilst this was fixed in the past at The management at the CHA admitted 10 per cent, now it is left up to the there were three barriers to participation community to decide). There was evidence across Balkh Province, with the 12 per cent through the research to show how, for literacy rate in general representing the example, widows, orphans and the disabled most significant. District staff claimed that were specific beneficiaries of some initia- ‘80–85 per cent of members find it difficult tives – e.g. sheep rearing in Sholana. to understand completely all the forms and they should be in very simple/local language The recommendations from the Altai to be made accessible’. It was therefore rec- Assessment (2004, 4/10) cover various ommended that the skills of the CDC aspects of community participation. In the members needed to be improved and that first instance, Altai (2004, 4/10) recommend there needed to be an increase in the distri- using PRA tools in order to facilitate census. bution of ‘working’ satellite radios. There was evidence from this research to suggest that formal PRA methods were in Management staff hoped that this barrier use, with each FP facilitating consensus as was alleviated by their methodology and the situation dictated. Some FPs, such as approach to training; that is, by starting at SDF, used a ‘problem tree analysis’ but no the elite level within the CDC and then social mapping or resource mapping 37 CHA Provincial Management moving down gradually. Using the local exercises appeared to be employed. Altai Team, 26 October 2005; language also helped the people under- (2004, 4/10) also presented recommenda- and CHA District Team, stand.37 UN-HABITAT ‘anticipated that illit- tions for improving community mobiliza- 31 October 2005. eracy would be a barrier’ and joined the NSP tion: to prepare instructive pictures/cartoon ACKU38 The FP Director noted magazines. Accordingly, ‘each phase has a FPs should be selected on a basis of that in general the treasurer and cartoon handbook, in particular, for the an historical presence in the area or, the secretary have to be literate election of the CDCs, and this has proved as a minimum, on its experience in and educated and this is a useful for the educated and the unedu- rural development and community prerequisite for these posts in cated’.38 mobilization; the election. Alternatively, it was Local leaders should be used to asserted that “most chairmen The time of the year formed the second, champion the NSP; tend to be uneducated”. though variable, barrier. That is, people Close contact with the communities (UN-HABITAT Provincial were typically ‘too busy with farming during on the status of their project must Director, 1 November 2005). the spring and summer months to partici- be ensured; and pate in the NSP’. Implementation can thus The presence of other development 39 UN-HABITAT Provincial be limited when the men are unable to programmes and the involvement Director, 1 November 2005, conduct large meetings. Conversely, winter of CDCs in these programmes Balkh. is more conducive for such community par- (project identification and management) ticipation but access to communities more can be a real asset to strengthen difficult. The third barrier to participation the role of CDCs and keep the FINDINGS AND was that CDC positions were not salaried.39 level of motivation high. RECOMMENDATIONS

58 Although the NSP is more advanced than their behalf. This process is universally when Altai undertook the evaluation, some accepted by the women in the sites visited. of their recommendations have yet to be Women do not have a direct say in the fully integrated. All of the FPs we worked process of prioritization and project with had either an historical association selection. Feedback from the women with an area or a high level of expertise in suggests that their male relatives inform rural development and community mobi- them as the decision is being made. This lization. Even though, for example, GRSP was also universally accepted by the women had not worked in Kundoz before the NSP in the sites visited. However, women do they are highly experienced in rural devel- have their own sets of priorities for gender- opment. GRSP ran a number of training specific initiatives – health training, micro workshops in preparation for the rollout in enterprise and literacy, which remain largely Kundoz. However, this evaluation has high- unaddressed. lighted that ‘success’ is dependent upon many external factors beyond an FP’s own In Paktika, the FP encountered similar experience. DACAAR, for example, have problems; the men were not ready to relevant experience in Laghman and rural register the names of their women for the development but their work is nonetheless Programme. For instance, once the then- affected by external factors beyond their Deputy Governor of Paktika learned that control. Certainly the use of local leaders the names of some women were registered, can be positive from the FP’s viewpoint; he complained to the FP that ‘they would however, care should be taken over just report (the women) to Americans who will how much influence these local leaders make them come out of their houses and go have – do they rule by fear? The household to schools’. The situation is now different surveys showed that in some areas people and there is more willingness amongst the are still cowed by local warlords who are population to allow women to be registered now on the CDC. Again this research shows for the NSP that communities are reasonably content that communication between the FP and In Kabul, SDF confirmed that although the the CDC is adequate. However, feedback initial NSP concept was to have mixed from the FPs indicates that they often find CDCs, it didn’t work. SDF now have a themselves in a difficult position when women-only CDC with their own projects, delays occur because they are held person- but there is cooperation between the two. ally responsible for disbursement problems. The women are assisted by the men’s CDC In some areas CDCs are being used by other on the logistics, such as purchase of goods. programmes (e.g. USAID’s Alternative The women’s CDC for their part often con- Livelihoods Programme in Nangarhar), and tribute financially to the projects of general feedback suggests that as more develop- community benefit run by the men (see mental programmes evolve and the capacity again Godara women’s CDC). In Kabul, at of CDCs increase the linkages will become least, after initial scepticism the men have greater. accepted the concept, especially when they saw the money coming in and projects Women’s participation being implemented. This seems to be There remainACKU significant cultural barriers to further evidence of the importance of the women’s participation in many of the projects as vehicles for promoting social southern provinces of Afghanistan. change. However, gradual change is occurring. The experience of BRAC in the Achin District of Even in the more conservative areas in the Nangarhar was typical, where men were south where women are allowed to register refusing to let their wives/female relatives for the NSP, they experience one key even be considered on the survey sheet for benefit. Until the female-only CDCs were the NSP preparation, but this is slowly established, women were not allowed to changing, as the NSP gains acceptance. mix outside of their household. Now, However, there is no occurrence of men through the CDC, women can meet to and women sitting together to formulate discuss NSP matters. The female-only CDCs the CDP. Without exception, all members of have become a forum for discussion on the senior CDCs are male. Women have other relevant issues (health, domestic formed their own CDCs (as specified by the violence, literacy, etc) that women could not Manual). However, the women give their discuss before for want of a reason; this is a SECTION 3: votes to their male relatives, who vote for direct result of NSP. A common observation SUB-NATIONAL LEVEL the all-male members of the senior CDC on from many of the FPs and this research was

59 that the more people see the benefit of the Identifying projects as community priorities CDC and what it can bring, the more both The projects are identified through a PRA- men and women want to join. type process with focus groups identifying problems and ranking priorities for sub- The Altai (2004, 5/10) women’s participa- project proposal. As many of the FPs tion recommendations highlight several key acknowledge, and the household surveys areas that should be addressed to improve indicate, in some instances traditional elites women’s participation. Altai recognize that such as warlords still dominate proceedings. it is best if men and women meet separately In such cases some FPs get people to write before convening at a common consulta- or draw their priorities on paper so they will tion, as this is more respectful of the not be directly influenced by the elites. cultural separation between men and Often though, people are too cowed to women, and it allows women to raise a respond independently. Conflicts of interest louder voice and to express more freely can also occur when a decision on a than when mixed with men. community priority is evenly split, i.e. where there is a substantial minority who have not Women’s groups for selection of projects, got what they want. women’s committees with separate budget, and the increased use of women’s staff, are The project will only proceed if it is: a) tech- all concepts that appear to be accepted by nically acceptable; b) costed within the the FPs, and in broad terms it certainly defined budget; and c) if there is adequate seems that where possible the FPs are attention given to issues of future mainte- following this advice. The exceptions nance. It is often necessary for FPs and remain in the more conservative areas of sometimes the Provincial OCs to assess for the south. Here it is recommended that the mine risks, undue political pressure, and gradual approach to women’s participation environment factors other than the ones is maintained; clearly anything that is seen identified during the feasibility study. For to be ‘imposed’ will only be met with example, in 2005 a CDC in Nangahar wanted hostility. to initiate a project to generate income through the construction of kilns used for firing bricks. After an environmental assess- The efficiency, effectiveness and ment the project was turned down because relevance of the FPs work of the negative impact associated with The research findings observe that from the increased incidences of land slides, and the viewpoint of the FPs there are several key exacerbation of soil erosion due to the need factors which impact upon the efficiency, for wood to fire the kilns. In addition, rela- effectiveness and relevance of their work. tively intense fires in the arid conditions of The approach to identifying the projects as Nangarhar are not appropriate. community priorities, the eligibility criteria, delays, problems associated with the high Eligibility criteria number of projects, allocation of staff and FPs found that whilst it is easy to apply the skills shortfalls, appropriate design and con- eligibility criteria to the intrinsic project it is struction, the project relevance and mainte- not always easy to present this criteria to the nance and sustainability all have their ACKUcommunity. In Balkh, for example, the CHA strategic and operational basis in the management team and the UN-HABITAT MRRD/OC rubric, but nonetheless are Provincial Director felt there was no central to FP’s operations. problem in applying the criteria to the needs of the communities. CHA district staff Central to the role of the FPs is the agreed but admitted it was difficult at the Operational Manual. All the FPs believe start presenting it to the community. In that the Manual is a clear working Nangarhar, the first project people often document. However, the majority of FPs want is a mosque. As a BRAC community complained that the manual is changed too mobilizer related: ‘We tell the communities frequently, which in the past has meant that to work together and identify priorities, to work has been initiated on the basis of listen to each other and they tell us they guidelines that are then altered or want a mosque, even though we have said cancelled. For example, SDF undertook a from the start that we cannot give them a great deal of work preparing communities mosque, and they ask us where is the for income generation projects that were ‘democracy’ in our thinking, denying them then stopped. This created great disap- something they all agree upon to be a FINDINGS AND pointment. FPs felt that changes to the priority. We are then accused of trying to RECOMMENDATIONS Manual do not take place in a consultative impose Christianity!’ way. 60 Box 8. Identifying community priorities through project selection – examples from CHA and UN-HABITAT In Markaz-e-Dawlatabad, CHA recalled that the community originally wanted a generator for electricity but the people realized they could not raise the additional US $40,000 to meet the US $100,000 total costs (Dawlatabad is the size of a small town although is classified as a village). Although there was already a school in the community, the people opted for an additional school as their second priority because there was need for more space. The present school had only 16 classrooms. Nevertheless, the new school would only have 8 classrooms, which meant “the number of rooms was still an issue” (CHA District Team, 31 October 2005).

In Choba Temorak Karni Khail, CHA noted that their first task was consulting the CDC and to encourage them to prioritize the needs of the community. The people then gave their input on the list and the CDC made the final decision: “[t]he people sat and thought, ‘we have a school and road but we need a community centre’. The technical engineer estimated the cost and detailed a budget.” (CHA District Staff, 27 October 2005). In Yakdan, similar processes of consultation were noted (CHA District Staff, 8 November 2005).

For Aliseena, UN-HABITAT described the first phase as ‘identifying the priorities of the communities, categorizing the problems, and deciding which projects can be done’. Unlike Markaz-e-Dawlatabad, Aliseena were able to choose their first priority, followed by a school and then electricity. The district staff recalled that, ‘as soon as the community reached their conclusion, we had a large gathering and some problems were raised by CDC members concerning the identification of their priorities’. In Alichopan, the people rejected the CDC’s original proposal and asked for water supply instead (UN-HABITAT District Staff, 10 November 2005).

It was estimated that 16 villages would use the school in Markaz-e-Dawlatabad; 900 people to use the community centre in Choba Temorak Karni Khail; all 218 families benefited from the bridges and aqueducts and expected to receive electricity in Yakhdan; and it was hoped that all the residents in Alichopan (306 families) and Aliseena (426 families) would benefit from the water supply projects (CHA District Staff, 27 October 2005; CHA District Team, 31 October 2005; CHA District Staff, 8 November 2005; and UN-HABITAT District Staff, 10 November 2005).

All the district staff for both CHA and UN-HABITAT admitted it was likely that the projects would pull people in from outside the community – new residents and/or returnees (CHA District Team, 31 October 2005; and CHA District Staff, 27 October 2005). For Yakhdan, CHA acknowledged that the electricity ‘will have high impact, the people will be more civilized and since most left their houses originally because there was no electricity, they will come back’ (CHA District Staff, 8 November 2005). UN-HABITAT developed this point further by raising ACKUtwo interlinked barriers: ‘no one can prevent people from coming in and we have received no guidance although we have already told the MRRD and the World Bank, and donors know about it’. Furthermore, strains could emerge since the project budget was based on the original community profile and there were no provisions for re-adjustment (UN-HABITAT District Staff, 10 November 2005). The respondents could not suggest possible solutions based on the strict guidelines of the NSP. For example, it may be possible to ensure that water supply is restricted to the original beneficiaries by piping the water into their homes. However, this option would be very expensive to construct and maintain (UN- HABITAT District Staff, 10 November 2005).

Attempts to be inclusive The school in Markaz-e-Dawlatabad could not be completely inclusive because there were only 8 classrooms to accommodate the children of more than 1000 families. Poor roads would also have hampered access for those on the outskirts (CHA District Team, 31 October 2005). Conversely, the community centre in Choba Temorak Karni Khail, the bridges and electricity project in Yakhdan and Aliseena’s and Alichopan’s water supply projects had the potential to be inclusive (CHA District Staff, 27 October 2005; and CHA District Staff, 8 SECTION 3: November 2005). SUB-NATIONAL LEVEL

61 In terms of gender equality, the NSP clearly promoted men’s and women’s CDCs and both FPs had encouraged women’s CDCs from the start. However, power and influence in the project process was typically limited to the men. There were two approaches to this imbalance – mixing or continuing the segregation of the CDCs. For the former, CHA was optimistic that CDCs would merge in the future but assured the researchers that this was completely impossible at the start of the NSP and for villages initially. Instead, the FP’s approach was to start small and encourage integration, and staff believed that there was the potential for this to increase (CHA Management Team, 8 November 2005).

Assessment of political, economic, sociological and technological factors The non-budgetary reason for choosing the school in Dawlatabad was the lack of access to proper schooling outside of the home and mosque (CHA District Team, 31 October 2005). Before proposing the centre in Choba Temorak Karni Khail, the community valued a tangible presence of the government (CHA District Staff, 27 October 2005). In Yakhdan, it was believed that the projects would increase people’s general awareness and improve basic access (CHA District Staff, 8 November 2005).

The researchers were assured that the construction of the community centre in Choba Temorak Karni Khail would enjoy similar checks in addition to the support and interest of the people (CHA District Staff, 27 October 2005). Yakhdan also had two monitoring teams consisting of CHA staff (technician and evaluator) and the community (engineer and foreman) (CHA District Staff, 8 November 2005). UN-HABITAT stated the projects in Aliseena and Alichopan would have “three sub-committees for procurement, finances and monitoring”. Monitoring would be supplemented by the OC, MRRD and UN-HABITAT, but the researchers raised the weakness in the M&E capacity of the MRRD. The respondents argued that capacity had improved but accepted the limitations overall and added that probably ‘the best way was for the people to monitor’ (UN-HABITAT District Staff, 10 November 2005).

FPs found the eligibility criteria to be most excessive length of time it takes for the useful in determining limits and clarifying Block Grant to be processed by the OCs, specifications of more technical projects. and the protracted process of dispersal of Some CDCs want large-scale infrastructure funds through the DAB. However, many FPs projects such as dams which, due to cost like CHA and UN-HABITAT in Balkh and scale, fall outside the remit of the NSP commented that the delays in disbursement (US $60,000). Many people ask for carpet- were becoming less; however, they recom- weaving projects but these have proved to mended that 100 per cent of the funds be very difficult to bring forth a positive should be transferred once the project is change because, whilst the intrinsic carpet- approved. Other FPs such as BRAC in weaving is straightforward, the marketing Nangahar maintain that over the last 6 and distribution of the carpets is far from months these delays have worsened, but easy. FPs clarified that the eligibility criteria ACKUthis is due to the worsening security sit- is most relevant to the micro hydro and uation in the Eastern region and the uncer- diesel generation projects, as are cross tainty that surrounded the election process. sectoral projects such as health initiatives On occasions BRAC has to wait up to 6 which need to be sanctioned by the Ministry months for the Block Grant to arrive; these of Health and not the NSP. delays cause tension between the CDC and BRAC. For example, the increment for the Delays intake project in Sholana was delayed by 6 There are many reasons for delays – delivery months, during which time the community of materials, security problems, weather, was again flooded because the protection geography, problems of disbursement and had only been partially constructed. poor CDC/FP management. The period of time between identification of The most common source of delays is the the project and project completion varies disbursement process. Once a sub-project considerably between FPs. For BRAC in proposal is submitted, the OC check the Nangarhar and GRSP in Kunduz the time proposal in order to make a decision on between project identification and imple- FINDINGS AND whether the project should be sanctioned. mentation is typically around 3 months, and RECOMMENDATIONS The prime reason for delay is due to the in Herat UN-HABITAT the period of time

62 between identification and implementation organizations feel they have the capacity to is 5 months. According to the NSP-OC, the administer and implement the intrinsic NSP, average time from implementation to com- they find it difficult to keep up with the pletion is meant to be 2–3 months, but the rollout pressure. This causes them to work process can take considerably longer. In the quickly with the CDCs to make sure the case of the school in Dawlatabad, 9 months proper OC procedures are followed; FPs lapsed between identification of the project acknowledge that this often means that in and the start of implementation. the long-term the CDCs will not have the Implementation started on 24 April 2005 capacity to cope in a future without the FP. and the first instalment was spent. Construction had stopped as the CDC had Allocation of staff and skill shortfalls been waiting 3 months (at the time of The FPs allocate their staff in the most research) for the second instalment. The efficient way possible; however, due to the MRRD in Kabul were initially blamed for this general shortage of engineers there are delay but it then transpired that CHA had inevitably increased pressures on some staff made an administrative error, which appar- members. Some of the FPs, especially at the ently had been recently corrected.40 SDF district level, felt that their ‘relevant skills maintain that the ‘centralization of decision- were weak at the start of the NSP’. While making on project proposals and the this gradually improved, they still desired dispersal of the second and third Block more skills training, ‘for example, in Grant instalments costs too much time and community development monitoring and effort. It would be more efficient to decen- methodology’. In particular, the staff tralize the decision-making authority. suggested that ‘social organizers need more training about women’s rights and mine Problems associated with clearance/awareness’ (CHA District Staff, 27 processing the high number of projects October 2005). Some of the FPs experienced problems in processing the high number of projects; CHA and UN-HABITAT provide a good these problems were not intrinsically linked example of staff allocation. For Charbolak to the number of projects but, rather, FPs District, CHA allocated 6 core staff for the felt that due to pressures to implement NSP consisting of finance, administration, projects it was difficult to ensure that the engineering (junior and senior) personnel CDCs had sufficient capacity to act without and a senior supervisor/manager. Only one the influence of the FP. For example, CHA of these core staff was female. In addition, district staff noted that there are many diffi- there were 16 social organizers. Each culties at the beginning of the implementa- project typically had 6 staff, 4 salaried tion, especially during the elections of the (engineer, storekeeper, finance and CDCs and the writing of the CDPs.41 UN- foreman) and 2 from the CDC with no HABITAT was reaching this busy stage and salary. Projects in Dawlatabad District had 1 was thus concerned about ‘the next three to senior and 1 junior engineer, 1 facilitator, four months’. The Director also noted and a district officer. UN-HABITAT claimed 40 CHA District Team, problems at the start when the communi- 18 staff were allocated to the NSP, including 31 October 2005, MeS. ties found it difficult to understand the pro- managers, engineers, social mobilizers, ceduresACKU of the NSP. He estimated that reporting officers, and administration and 41 CHA District Staff, ‘40–45 per cent of the 13,000 projects are of finance. Eight staff members were female.43 27 October 2005, MeS. good quality, but for the others there is The Director’s account conflicted with this concern that the quality will not be as good total, noting that, ‘for 18 CDCs, we have 1 42 UN-HABITAT Provincial because the CDCs have insufficient engineer in addition to 23 field and support Director, 1 November 2005, capacity’. He therefore recommended that staff. The Director estimated that they Balkh. ‘it is better to start with two to three assigned “1 social organizer to 12 CDCs, projects with the CDCs and with a small who would cover 2 CDCs each day and all 43 UN-HABITAT District Staff, grant of US $20,000 maximum so that they 12 CDCs each 6-day working week’. 10 November 2005, Balkh. can learn the necessary skills gradually’. Nevertheless, he admitted candidly that ‘we, Alternatively, he thought it was better for like all FPs, have problems’.44 44 UN-HABITAT Provincial the government and/or the UN agencies to Director, 1 November 2005, implement the US $60,000 projects. The CHA provided the following description of Balkh. two problems were the ‘delays in instal- the main project skills needed; these were ments and weak monitoring’.42 echoed by other FPs: Social Organizer – community develop- SECTION 3: Other FPs felt that there are significant ment, working with the community, SUB-NATIONAL LEVEL problems associated with processing the knowledge about the 5 phases of the high number of projects. Although both NSP and the culture of the community.

63 Senior Engineer – to check the proposal and the NSP Programme methods. Box 9. Engineer – to know about the NSP, Examples of the issue of appropriate design and construction engineering issues and construction. – CHA District Team in Balkh District Officer – to know all about First, the school in Dawlatabad was built strategically at the centre of the the NSP, management, finance, community. Second, technical engineers were hired to complete the administration, and methodology design. This was ‘approved by Kabul and is based on normal standards of establishing elections. although we also have a Safety Standards Theory’. The Department of Monitor – to be skilled in the approach Public Health also issued a code. Following this, the relevant CDC sub- to monitoring, proposal writing, committees discussed the need for skilled labour and then found skilled feedback, relations between the district labourers, foremen and extra monitors within the community. They had office and the district government. purchased the materials from the local market (CHA District Team, 31 Community Development Officer October 2005). Despite the efforts of the community and all the NSP – how to develop the community, actors, the construction of the school was flawed; in particular, there was get a full picture of the community insufficient mortar used between the bricks, nor were the structures of and check the community proposal. the three buildings strengthened. However, it was unclear if this was the NSP Manager – full responsibility, result of poor construction or the effect of the CDC trying to save money knows about all the programmes, the in anticipation of the delay. Regardless of blame and the delays (past and methodology of NSP, relations between future), it was certain that the construction would not be able to continue the OC and the office and how to until after winter (CHA District Staff, 8 November 2005). resolve problems. Office Manager – to manage and assist The construction of the school in Markaz-e-Dawlatabad had reached a the NSP Manager.45 midway point. CHA noted that they had ‘technical monitors, engineers and a monitoring team (members of the CDC) to check the quality and UN-HABITAT provided a similar overview, management of the project during weekly visits’. (CHA District Team, 31 noting orientation training, how to mobilize October 2005). the community, how to select the CDCs and prepare the elections, CDP training, project Pre-construction, for the community centre in Choba Temorak Karni management, evaluation, implementation, Khail, the CHA district staff could only refer to ‘having our own engi- procurement and accounting.46 neering standards and public health norms and standards’. While CHA had already found skilled labour, they were trying to find more from the The SDF field staff thought that the main community and to give them cost-effective training. The community also requirements for the job were: that all planned to utilize the procurement subcommittee to purchase the except the drivers and guards should have a materials locally. The community and CHA believed it was unnecessary to secondary school certificate (baccalaure- consider mitigation/defensive measures against natural disasters as there ate); staff need a good understanding of the were no previous similar disasters in this area (CHA District Staff, 27 society and should know and respect the October 2005). culture and traditions of the communities; they should have good communication In Yakhdan, the community worked with the CHA and the Department of skills, including knowing the local dialect or Public Health to design the 13 bridges and aqueducts. The relevant gov- at least understanding it; conflict resolution ernment standard was used and technical experts from the OC and the skills are also necessary. MRRD also had input on site. In particular, the CHA designed the aqueducts and obviously assessed the natural supply of water. There was Before going to work in the field they ACKU a monitoring schedule (for quality and quantity) for both organized by received orientation on the NSP concept the OC and the NSP. The procurement committee within the CDC and training in community mobilization, purchased the material and hired the engineers. The community and communication, problem analysis, conflict CHA also believed mitigation/defensive measures against natural disasters resolution and peacebuilding. Of these, were relevant (CHA District Staff, 8 November 2005). community mobilization and conflict resolution had proved most useful. For example, The extensive interviews with three levels of the FPs clearly uncovered a they have been called on by communities to range of salient design and operational issues. Several positive features resolve conflicts because their expertise is were noted, including a clear understanding of their role and function known. with the NSP, a resultant increase in capacity and instances of cooperation with the OC and RRD. However, the most fundamental weakness concerned the projects. This included widespread inefficient Appropriate design and construction implementation and instances of poor design. Moreover, it was The appropriateness of the design and concluded overwhelmingly that the sustainability of the projects was not method of construction are essential to the envisaged by the relevant actors. efficiency of the project. Examples are used from Balkh and Nangarhar to illustrate the experience of the FPs.

64 Altai (2004, 8-10) recommend that standardized designs should be created to avoid the Box 10. great loss of time, due to the fact that the Issues of appropriate design and construction engineers of each FP are making almost the – the BRAC Team in Nangarhar same technical design for a school, bridge To ensure efficiency within the actual design and construction of the or well. Providing simple engineering facility, BRAC always undertake a feasibility study to clarify if the proposed software, along with adequate training, project is appropriate and sound. A BRAC engineer, working on occasions would hasten dramatically the feasibility with OC/MRRD representatives, will carry out the feasibility study to studies. This research would certainly survey the design, implementation and maintenance of the project in endorse these recommendations; however, accordance with the Technical Manual. BRAC acknowledge that this whilst there is evidence of standardization process requires qualified engineers who are in short supply. Local capac- of design within the FP, it is too early to say ities are assessed, but due to the shortage of engineers not all people are whether these recommendations have been up to the task, hence the role of BRAC as the overseer working through fully implemented. a technical checklist takes on an increased importance. Once the project has received sanction, purchasing of materials takes place in three key Relevance ways: direct (>Afs 500), quotation (>Afs 5000-250,000) and bidding SDF staff thought that judging the FP per- (>Afs 250,000). formance (or efficiency) on the quantity of projects completed does not value their Mitigation measures for earthquakes and floods are incorporated in both quality. Rather, quality issues such as the architectural and engineering aspects of the design. For example on relevance/utility to the community, appro- a 300 m protective wall in Sholana expansion joints are placed every 15 m priate design and sustainability are more to allow for seismic movement, and buildings tend to be low and wide. important. To this extent the research Problems during construction include strict supervision for mixing/timing showed that all the FPs facilitate a range of of the cement, as one BRAC engineer complained, ‘Engineers in projects including irrigation, water intake, Afghanistan do not allow for curing because of the lack of water; this diesel generator, protective walls, roads, causes problems such as weak cement, flaking and cracking etc.’ boring wells, culverts, sheep rearing, school construction, community centre construc- BRAC feel that to increase the project efficiency the training needs to be tion and self-help. more comprehensive and include more NSP-specific projects. Currently there is flexibility for BRAC engineers with autocad experience to design The projects have a direct relevance to projects that are not covered in the Technical Manual but have nonethe- community needs although some FPs such less been chosen by communities and received sanction from the OC. as BRAC acknowledge that projects such as water intake are more universally beneficial The usual considerations of quality, costs and time are of course relevant than others. The most relevant projects to the efficiency of the project. The delays in disbursement causes costs demonstrate clear linkages between the to increase. For example in one site at Dago, Chaparhar, an original newly created CDC and its capacity for estimate for the price of a bag of cement doubled during the period of community development, and the intrinsic time from project submission to first disbursement. Fortunately there is project with other forms of community provision for such occurrences within the incremental process that development. enables increased amounts for the second and third instalments. However the Provincial NSP Manager of BRAC summed up, ‘The real There is a problem of understanding in problem is that the BRAC is involved with 348 projects and the OC/MRRD many of the communities. For example, at the Provincial level only have 2 engineers to visit all the projects and ACKUpeople want light but many have no appre- give feedback; the OC/MRRD at the provincial level simply do not have ciation of how the light appears, and how the capacity to check the number of projects.’ the generation of light needs to be maintained/sustained, and for the poorest power On larger projects there is some effort made for safety of workers, but is not a priority. In the experience of some there are few concessions; no helmets, basic site safety etc. of the FPs the poorest communities are more likely to ask for an economic activity rather than an infrastructure facility, but the same communities often feel deluded when 45 CHA District Staff, tangible results do not happen overnight. 27 October 2005, MeS. Although as yet there is no country devel- 46 UN-HABITAT District Staff, opment document like a PRSP, the intrinsic 10 November 2005, Balkh. projects are broadly integrated and relevant to national development plans of reducing poverty and improving infrastructure. SECTION 3: SUB-NATIONAL LEVEL

65 Maintenance and sustainability 3.4 Recommendations for The research with the FPs highlighted the sub-national venues for importance of the initiation of several the coordination and the measures to ensure that NSP projects can be operational delivery of the NSP 47 maintained. The cost of the maintenance, as well as the depreciation of the asset, should be included within the project cost. The The role of the provincial MRRD community (per household that benefits) pay a fee either in cash or in kind once a month to enable appointed technicians to Recommendation 13 maintain the facility, provide for fuel for the A strategic plan needs to be devised by the project if necessary and to cover deprecia- MRRD in order for the provincial level tion costs. These costs typically account for administration to ultimately assume a long- 20 per cent of the overall investment. term NSP delivery role. This must involve a significant capacity development dimen- In theory, local technicians and not profession. Provincial DRRD staff will need to play sional personnel maintain the facility, and a greater role in NSP quality control, the money saved up through the monthly enhancement and disbursement processes payments scheme ensures that when the by the end of the Programme. facility is beyond repair a new facility can be purchased. However, at this relatively early However, due to the absence of a culture of stage many FPs are not optimistic that this sub-national government in modern system will work, fearing that even if funds Afghanistan, it is crucial that the decentral- are collected, the cash will be spent ization of operational delivery functions to elsewhere and the facility will fall into DRRD provincial and district officers is disrepair. Unfortunately, this is also carefully phased in. Indeed, it should only testament to the limited capacity of certain occur when it is clearly demonstrable that CDCs. DRRD officers have the capacity to assume the role. In the meantime there is an urgent Sustainability is also an important factor in need to build DRRD management and oper- relation to economic activities, but much ational delivery capacity at the provincial more difficult to measure than infrastruc- level and to extend it down to the district tural projects. Even BRAC, with its tremen- level through a phasing strategy. Until then dous experiences of working in rural com- the continued presence of an OC-type munities, is unsure how microfinance initia- organization would be prudent to insulate tives implemented through the CDCs can the NSP against political pressure and cor- help to reduce poverty. ruption, and to ensure independent quality control and monitoring and reporting to donors. Summary All of the FPs have serious doubts whether the CDCs will be able to function without further capacity development and direct Recommendation 14 external support. The future role of the FPs ACKUThe cap on budget allocation (‘regardless of rests on whether the NSP remains purely a the number of real beneficiaries’) is causing development programme or whether the significant distress within the Programme governance component of the Programme and risks precipitating conflict. The assumes a greater role in NSP Phase 2. If the problem of budget caps based on poor pop- 47 Please note that the former applies then their engagement will ulation surveys needs to be looked at and consideration of these courses be concluded at the end of the project, but acted upon by central MRRD as a matter of of action should take into if the governance dimension is emphasized urgency. consideration the costs of they will a) need to undertake further change, which should be training to prepare the CDCs for taking on calculated on: a) their capacity such a governance role, and b) be funded to to improve qualitative rather maintain contact with the CDCs over a than quantitative output and period of time to organize re-elections and b) the likelihood that they will then undertake further training of the newly survive for a considerable time. elected members.

FINDINGS AND RECOMMENDATIONS

66 Recommendation 15 The role of the While the official CDC complaints pro- provincial OCs and teams cedure is used, the approach to its implementation varies considerably, to the extent that it risks disappearing in some provinces. Recommendation 21 This is especially worrying considering the The capacity development of the DRRDs by natural barriers to establishing transparency the OCs needs to be made relevant to the and accountability in the context of a war- implementation environment and the ravaged state. The complaints procedure rationale of the NSP in order to avoid insti- therefore needs to be standardized and tutional dependency while ensuring the entrenched. Programme advances.

Recommendation 16 Recommendation 22 There is a need to reconcile conflicting The level of skills and capacities of models of governance, both at the community members required by the community and programme design level. Programme to reach its targets needs to Similarly, the question of sustainability reflect the actual skills and capacities of the (CDCs and projects) should also be community members. The advancement of addressed at both levels. targets would demand training to address the gaps and weaknesses in these areas, as identified by the OC in consultation with each CDC, DRRD and FP. Recommendation 17 Greater efficiency and effectiveness would be gained by improving cooperation between government departments at the Recommendation 23 provincial and district levels, with a focus on As a particular concern within the recom- coordination. As a minimum requirement, it mendation above, the skills and capacities is important for government departments of women CDC members need to be to have accurate information concerning improved towards ensuring gender-equal the responsibilities and operational tasks of participation and decision-making at the their counterparts to avoid confusion or community level. jealousy.

Recommendation 24 Recommendation 18 The cap on budget allocation (‘regardless of Sufficient operational and human resources the number of real beneficiaries’) is causing need to be provided by the MRRD in the significant distress within the Programme field in order to maintain levels of and risks precipitating conflict. The community confidence in government. problem of budget caps based on poor pop- ACKUulation surveys needs to be looked at and acted upon by provincial OCs and teams as a matter of urgency. Connected to this, in Recommendation 19 overcoming project budget shortfalls, Processes of institutional learning need to further action is required to form links to be standardized and monitored. other international donor programmes.

Recommendation 20 The nature and style of training demands consistency and effectiveness, with special emphasis on improving the provision of technical skills training.

SECTION 3: SUB-NATIONAL LEVEL

67 The role of Facilitating Partners Recommendation 28 The definition of ‘project completion’ should be reviewed in consultation with Recommendation 25 FPs in order to incorporate an apprecia- Processes of lesson-learning across FPs tion of the intangible outcomes of the NSP should be improved, particularly in areas (e.g. community empowerment, ability to where certain FPs possess significant maintain facilities, etc). expertise e.g. UN-HABITAT and economic development activity or gender-oriented development programming or BRAC and working in areas with security problems. Recommendation 29 The Operational Manual should be changed as little as practicable; this would ease the pressure on the national OC and allow all Recommendation 26 other stakeholders time to consolidate A community-based programme requires a practice. 48 high degree of trust between the communities, the FPs and the government – this is easier to achieve if the FPs have previous rural development experience in Recommendation 30 Afghanistan. FPs therefore need to be Some of the administrative forms that carefully selected; a criteria is suggested require completion by the CDC are too below. A national NGO with prior engage- complex for barely literate people to ment in rural development and a profes- complete. There needs to be a balance sional administration and monitoring between transparency and expediency, capacity is the ideal choice as they don’t particularly for the CDCs. This is especially carry overhead costs for expatriate staff, the case for accounting and procurement establishing new offices or costly lines of forms and the sub-project proposal comple- communication, and they do have a tested tion form. A failure to adopt a more system for community development that realistic approach to capacity develop- can be further improved. In second place ment and community empowerment will would be international FPs with consider- continue to ensure that FPs remain able experience working in Afghanistan, a ‘Implementing Partners’. majority of Afghan staff at all levels, offices and experience of working in different parts of the country with rural development projects. These two categories of FPs are Recommendation 31 also better prepared to handle and mitigate NABDP and NSP thinking needs to be har- security risks and have the necessary degree monized in order to join-up Provincial- of trust within the communities to evoke District-CDC coordination of development community protection. The least ‘cost programming to avoid waste and duplica- effective’ FPs would be those who are new tion. to Afghanistan, overly reliant on expatriate staff that has a tremendous challenge to ACKU gain the trust of communities and government.

Recommendation 27 For some FPs the constant comparison to others working in less difficult areas is dis- heartening, and in some circumstances has led to a feeling of a lack of apprecia- 48 This recommendation has tion. Extra support and allowances should been adopted post publication be given to FPs working in problematic of the PRDU’s Inception Report, areas, particularly in terms of a more November 2005. flexible timetable and a reaffirmation of the generally good work they are doing in such trying circumstances. FINDINGS AND RECOMMENDATIONS

68 Findings and Recommendations The Role of Community Development 4 Councils in Representative Governance and Community Development

CDCs are generally viewed as an 4.1 The strategy for evaluating effective mechanism for reaching the Community Development Councils people, targeting development and producing quick, tangible results. The following observations about the role of The coverage of the NSP is outstanding. CDCs in the NSP are drawn from two (NSP donor stakeholder) sources – a community power survey and a household survey. The community power We want to see NSP move mainly to the survey was conducted with the principal governance side…CDCs are a vehicle for aim of assessing the extent to which CDCs local governance…people have very high had been able to assume the two key roles expectations and we need to see the assigned to them by the Programme: repre- creation of sustainable structures. sentative governance and community devel- (NSP donor stakeholder) opment. In practical terms this involved assessing their capacity to function inde- The CDC is our representative. pendently as a democratic leadership of It is our government. their communities and their ability to select, (Male and female householders plan and manage development projects. in Shah Qadam CDC, Bamyan) The household survey was designed both to assess the impact of the NSP in respect of its We have improved in terms of security, goal and objectives, and to provide but other improvements will take a long evidence of progress in developing inclusive time. In my opinion, reconstruction in community governance as a means of a 25-years war-ravaged country won’t be empowering communities to improve their a simple task. We have lost our national lives, as well as detecting changes in public constitution,ACKU our army, our police, our perceptions of government. education system and the most important, our national unity all over the country In the absence of baseline data, community and trust in each other; therefore I can’t leaders and householders in matched com- say that our lives have improved in a munities not participating in the NSP were short period of three years. interviewed, with a view to corroborating (Male householder, the retrospective accounts of the CDC of Bardowlet Khil CDC, Paktia) governance before the NSP, and in order to distinguish between general post-war trends and changes directly induced by the Programme. It is envisaged that this research strategy will continue to be useful for the NSP until adequate baseline data is generated by the Programme, through the compilation of enhanced community profiles and statistical records. A detailed presentation of the methodology employed can be found in Annex A.

69 4.2 The Community Development the capacity of CDCs to process NSP Council Community Power Survey documentation and maintain accounting and reporting systems; the ability of CDCs to forge effective Sample and key indicators relations with governmental for evaluation organizations; Comprehensive interviews with either the the ability of CDCs to forge effective principal office holders or, in some cases, all relations with Facilitating Partners; and the members of the CDC, were conducted the capacity of CDCs to be engaged in in 18 CDCs in 9 provinces. Of these 3 were gender mainstreaming. mixed shura in Bamyan, Balkh and Kundoz, while 4 were divided into separate men’s and women’s shura (3 CDCs in Balkh and 1 in Kabul). In 3 of these both men’s and Principal findings women’s shura were surveyed, and in one community in Balkh only the women’s shura. In 12 other communities in Badghis, On leadership of the community Balkh, Herat, Kundoz, Nangarhar, Paktika Eight of the 18 CDCs surveyed appeared to and Takhar men only CDCs were surveyed. be, as they said, the sole leadership of their communities. In the case of the 3 majority The majority ethnic groups in the CDC Hazara communities in Bamyan and Balkh, communities visited were Arab, Pashtun, the CDCs were not otherwise well estab- Tajik and Hazara. In Badghis, Balkh, Kundoz, lished, for example, in terms of project Nangarhar, Paktika and Takhar two CDCs in implementation, but there appeared to be the same area and working with the same no pre-existing formal institutions of gover- FP, but at different stages of development, nance. In Kundoz and Nangarhar, two estab- were surveyed for comparative purposes. In lished CDCs felt that they were fully in Bamyan, Herat and Kabul only one CDC was charge, but they had clearly had to surveyed in depth. negotiate with pre-existing authority figures. In the majority Arab community in A further 4 CDCs were visited and briefly Balkh, the traditional shura had disbanded interviewed in the course of the engineer- when the village joined the NSP, and this ing specialist’s fieldwork in Kabul. was also the pattern in Kabul where the Additional CDCs were also visited in peacebuilding exercises in preparation for Nangarhar (8) and Laghman (8). In addition, the elections to the CDC had involved nego- for comparative purposes, leaders of 6 com- tiating the inclusion of traditional leaders in munities not included in the NSP were inter- the CDC, which then became the sole insti- viewed, and household surveys were tution. conducted in the same communities. These were in the same geographical areas as Contested leadership – the role of women CDCs where interviews and household in Community Development Councils surveys were conducted, and matched as far In all of the communities with established as possible in relation to common indicators CDC leadership except in Nangarhar of socio-economic conditions and ethnic ACKU(discussed below), women CDC members composition. The communities were clearly had a leadership role for the women located in Badghis, Balkh, Herat, Kabul, in the community and were able to discuss Kundoz and Nangarhar, and had either Tajik and represent women’s interests. However, or Pashtun majority populations. they clearly did not have a role as leaders of the whole community, even when they sat The key indicators that were operational- in a mixed shura. Cultural limitations to the ized in order to provide an overall assess- acceptance of women in such a role were ment of CDC capacity were: evident in all communities (apart from factors such as relative lack of education and the capacity of CDCs to exercise knowledge, discussed below). For example community leadership; in Kundoz, the two women CDC members, the capacity of CDCs to represent for cultural reasons, could not participate in the community as a whole; CDC meetings but made representations on the commitment of CDCs to behalf of women individually to elders or the enhancement of democratic male relatives on the CDC. In Bamyan, governance; although formally the deputy leader of the FINDINGS AND the quality of the role of CDCs in project CDC is a woman who participates fully in RECOMMENDATIONS management;

70 the meetings, householders only referred to work for change. As they put it, ‘Some the male office holders as leaders. people try to exert their influence but we hope things will change gradually.’ In Nangarhar at the other extreme, no practical role was ceded to women. They In another CDC in Takhar, which claimed to were were kept informed of CDC business be the sole form of government in the but excluded from it, including even from village, the researchers nevertheless voting directly for its members, being observed that, ‘Despite the absence of any obliged to transfer their vote to a male other form of government in the village, the relative. CDC members are under the influence of other elders and the mullah of the mosque.’ Nevertheless, the NSP had created the The CDC members themselves said nothing opportunity for women (especially younger could be decided without consulting them. women) to meet and discuss their concerns. As the women in Kabul also The exclusion of women from leadership pointed out, previously women had no In these communities the leadership role of contacts outside their own homes. women had little or no recognition. In the Takhar community cited above, for example, These cultural realities were the reason there was little evidence of women’s partic- given by the rather capable women in a ipation and the separate women’s CDC women’s shura in Balkh for wishing to appeared not to have any influence in remain separate, ‘It would be very difficult decision making. In two CDC in Balkh the to sit with the men...then they are superior women’s CDC, though with clear ideas of and we would have no voice in decision their own on village issues, had clearly been making. For now it is better to work sepa- excluded from the decision-making process. rately.’ In one case they said they did not have access to the documentation of the CDC, Shared and contested which nevertheless was maintained to the community leadership required NSP standards by the men. In In a further 8 communities in Badghis, other communities where only men were Balkh, Nangarhar, Paktika and Takhar, a tran- interviewed it was difficult to detect any sitional phase of shared leadership with the activity by women’s leaders in the CDC. pre-existing traditional councils or leaders (arbabs/maliks and mullahs) was evident. In these villages there was clearly a process On representative governance of negotiation and cooperation, with some Setting aside the issue of the full represen- individuals belonging to both authorities. tation of women discussed above, in almost On the whole, the CDC authority was fully all cases (16 of the 18 interviewed as well as recognized in the area of democratic partic- the majority of those visited) the CDCs were ipation in community development, while found to be representative of their traditional figures retained the political lead- community, often bringing together ership (representation to government and different family and tribal groups that had arbitration of disputes). However, CDC previously been antagonistic, by means of membersACKU described how they were increas- the cluster of representatives and negoti- ingly called on to fulfil these roles because ated sharing of the leadership roles. they often enjoyed more trust from the villagers. Some of these CDC thought it was The evaluation team was doubtful in only simply a matter of time before the CDC two cases about the inclusiveness of the assumed a complete leadership role. Others CDCs. A community of 375 households in a thought the two authorities were comple- remote area of Badghis had apparently mentary. excluded 75 families from the CDC in order to comply with NSP guidelines. Although it In a recently formed CDC in Kundoz, the was otherwise representative of the 300 process was more conflictual. The CDC households included, it was not clear from clearly enjoyed a good deal of acceptance by the CDC or the FP how the 75 households the general population, but its authority to were selected for exclusion, or how the represent the community was contested by community had reacted. A CDC surveyed in some influential individuals with close (and Paktika failed to demonstrate exactly how it allegedly corrupt) links to the district had been constituted and since no SECTION 4: administration. However, the CDC household survey was conducted, there was THE ROLE OF CDCs members were prepared to be patient and no other means of verification.

71 Although the evaluation team was satisfied number (5 per cent) seemed to have little in the majority of cases, on the basis of understanding of the CDC concept, observation and testimony, that the CDC regarding themselves as more of a project was not only representative but perceived management committee. The women’s as such by the villagers, there were only 8 shuras that were surveyed had successfully cases where the election process had involved and communicated with other certainly met the criteria set out in the NSP women in their communities by creating guidelines; that is, by secret ballot forums for discussion of community issues, monitored by external scrutineers (FP, OC, but as discussed above were not fully DRRD). In at least 5 cases, due to the illiter- empowered. acy of the majority of voters, various strategies for assisting the voters had been Only one of the CDCs interviewed (in adopted, such as instructing another Paktika), adopted a traditional approach to member of the community, an FP staff decision-making by deciding the priorities member or some other person to vote for within the CDC without reference to the them. In Nangarhar, as already stated, general population, on the basis of their women were required to instruct a male ‘expertise in issues relating to the relative to vote for them. In Bamyan, community’. However, the vast majority of women (who were almost all illiterate) were CDCs showed, through their descriptions of given assistance in the electoral process by how they worked in the community, that their shura by assigning a separate ballot they thought that they should act with the box to each candidate, who identified it by consent of the whole community. However, standing beside it. In the remaining cases, for a minority of CDCs the process of the CDC itself or the householders if community involvement in setting priorities surveyed, gave only vague accounts of the was seen as a consultative rather than an election. actively participatory process. One CDC in Kabul consulted residents through their representatives about their problems, then On the commitment of Community established the priorities in a problem tree Development Councils to enhancing exercise in the CDC, and reported back to community ‘democratic’ governance the residents. One CDC in Badghis also The extent to which the CDC are develop- ‘consulted everyone’ and then set the prior- ing into truly democratic institutions of ities in the CDC. However, they recognized community governance has to be judged by that in the future decisions might be chal- their ability to communicate with, and lenged and they would have to decide in the promote participation by, the whole community on ‘a majority-minority basis’. As community, as well as the transparency of already noted, the participation of women their decision-making processes and trans- outside their own shura did not occur in actions on behalf of the community. The CDC in provinces such as Nangarhar, evidence from the household survey Kundoz and Takhar, but men in these com- outlined in Section 3.4 below shows that the munities were actively involved in the dis- NSP has had a significant impact in this cussion of priorities for projects and in regard, but that further consolidation is implementing the projects. In other com- needed. The Community Power survey ACKUmunities in Kabul, Bamyan, and Balkh, sought to establish to what extent council women had varying degrees of participation members see participatory governance as in setting community priorities, but not in an essential aspect of the CDC concept that the work of the projects. they will need to sustain after facilitation is withdrawn. CDCs in the early stages of development might still be fully conscious of the impor- Participation tance of promoting inclusion and participa- Fifty per cent of the CDCs surveyed demon- tion, but had not yet fully established strated an understanding of and a commit- regular meetings and other means of sus- ment to the democratic governance model taining participation (for example the involving participation and accountability to recently constituted CDC in Badghis). When the whole community, as introduced by the it came to participation in and benefit from NSP. Others appeared to be committed to the projects, most CDCs at this stage were serving their whole community honestly consciously trying to allocate paid labour on and accounting for their decisions as an equitable basis, and had complied with elected representatives, but did not see the the guidance to select projects that would need for general participation. A small benefit the whole community. There

72 appeared in most cases to be a genuine implementation were already competent. commitment to this aspect of the NSP The reasons for this go beyond the quality concept. of the facilitation, though this is clearly one factor. While project management capacity Communication and transparency is clearly developed as a result of the NSP The understanding of the need for trans- experience and CDC members frequently parency by keeping clear records of described this, the level of existing skills and meetings, decisions and financial transac- experience in the community (educational tions was clear in all but three of the CDCs, level, former work experience etc.), as well but (see below) not all were able to fulfil this as the level of economic development and task or if they were, the majority of their proximity or ease of access to urban constituents were unable to read or fully markets, were also seen to be significant understand the records. Often no conscious factors. effort was made to overcome this problem. For example, three of the CDCs with good However, in those CDCs fully committed to project management capabilities (in transparency, various oral methods of Badghis, Kabul and Kundoz) were able to accountability were also in practice. For draw on the skills and management experi- example, in the largely illiterate community ence of community members, as well as a visited in Bamyan, communication with the higher than average educational level villagers was both through their cluster rep- amongst CDC members. They were also in resentatives and by briefings at monthly reasonable proximity to their provincial meetings attended by most householders. capitals. In contrast, longer established CDC In other communities, CDC announce- in remote areas of Badghis and Bamyan had ments are made in the mosque, as well as much greater difficulties with project man- (in those communities with higher levels of agement, and were clearly going to find it literacy, such as Kabul and Nangarhar) by difficult to pursue further projects without using public notice boards. Nevertheless, as some assistance. the household survey also reveals, even with the best intentions it can prove difficult to communicate adequately with dispersed On processing NSP documentation and poorly educated villagers who are and maintaining accounting extremely busy getting on with their daily and reporting systems lives. One area of competence that is critical both for purposes of transparency within the community and in order to satisfy accounta- On the quality of bility requirements of any future govern- project management mental, donor or NGO partners, is that of Seven CDCs (in Badghis, Balkh, Herat, recording the decisions, agreements, and Kabul and Kundoz) were found to have resolutions of the CDC as well as financial developed the necessary competences to book-keeping to an acceptable standard. manage projects: planning relevant projects involving the whole community; organizing Nine CDCs maintain records to at least the and supervisingACKU the work of implementa- standards set by the NSP. In some cases tion; managing paid and voluntary labour (such as in Kabul) land deals negotiated for from the community; raising monetary con- the purposes of project implementation and tributions from the community; managing minutes of all meetings with outside bodies, and accounting for the project budget or in other cases (such as in Kundoz) agree- (negotiating and recording purchases etc.); ments reached in the arbitration of forward planning for maintenance and disputes, were also meticulously recorded. working towards future projects. Two In addition, two CDCs yet to implement recently established CDCs in Balkh and projects did not have a complete set of Kundoz, that had planned but not imple- records, but on the basis of the records kept mented a project, also seemed likely to to date and their educational level, were develop the necessary management skills likely to meet the required standard. within the project timeframe. However, in the other 7 CDCs and the As in the case of democratic governance, women’s shura either very little was not all CDCs nearing the completion of recorded or the records were clearly kept by SECTION 4: projects had achieved this level of compe- the FP staff. In most cases, this was directly THE ROLE OF CDCs tence, while others in the earlier stages of related to the level of education of CDC

73 members. In the CDC in Bamyan, for made a complaint to the Minister on his visit example, only 5 members (4 men and 1 to the Province. Similarly, one CDC in Herat woman) are literate, and have little further and one CDC in Balkh felt that relations, schooling. They acknowledged that they though good, could be improved by better needed help. The women’s shura in Kabul, coordination and more frequent contact as unlike their well-educated male counter- there was a lot that the communities were parts discussed above, have only two prepared to do to support the government. literate members. One of these, the treasurer, is receiving help from the men’s Relations between the CDC and district treasurer and the FP’s social organizer administrations in Kundoz, Nangarhar and keeps some brief notes on the meetings. In Takhar, were clearly poor and characterized a CDC in Takhar the evaluation team by lack of trust and accusations of lack of observed well kept records but realized that recognition, corruption and nepotism. In they were the work of the FP staff, because Kundoz, in particular, this was clearly the CDC members’ level of literacy was very creating difficulties for the development of low. the CDC. In Takhar, apart from lack of trust there appeared to be very little contact or In other cases the lack of records was due to knowledge even of the DRRD. issues of governance and negotiated leadership. In one CDC in Badghis, educated members of the council had accepted the On Community Development Council election of a poorly educated member as – Facilitating Partner relations secretary in the interests of unity and The relationship with the FP was considered respect for democracy. This meant from two perspectives by most of the CDCs: accepting for the time being less than the FPs commitment and ability to form adequate documentation. In Balkh, as good community relations, and their already discussed, women’s lack of empow- capacity to facilitate the Programme. In 9 erment was a factor. CDCs these criteria were deemed to have been met. All the CDCs visited in Kabul, for example, commented on the commitment On Community Development Council and competence of the FP. However, other – Government relations CDCs, often working with the same FPs that Improving relations between the communi- other CDCs viewed as highly effective, had ties and government is both an objective of some reservations. For example, in Badghis the Programme and a necessary condition both CDCs were satisfied with their for the successful functioning of the CDC. relations with the FP but one detected that The critical relationship as far as the CDCs their engineering capability was not are concerned is that with their nearest level adequate. In Balkh, the men’s CDCs were of government – district administration very satisfied, but the women thought that (where it functions) or the provincial gov- they could have done more for them. A ernment. In one CDC in Balkh and one in further 9 CDCs made this kind of assess- Kabul, both the men’s and women’s CDCs ment of their FP. In several of these cases, it felt that they had good relations with the seemed that this was as much an indication district administration. The Kabul women ACKUof the CDC’s growing knowledge and also described contacting the provincial capacity for management as of deficits in the health authority over staffing of a maternity performance of FPs. clinic. However, in two other CDCs in Balkh, though the men were satisfied with their In Takhar, however, in addition to the lack of relations with government, the women contact with the government, the two CDCs thought that they did not get enough surveyed did not seem to have adequate support, though one CDC said relations support from the FP. The relationship was were improved. Both CDCs in Paktika char- essentially mutually cooperative, but very acterized their relations with district admin- little time was being given to training and istration as good. capacity-building. Visits from FPs were brief and informal and directed at implementing Five CDCs in Badghis, Balkh, Bamyan and the projects. It is evident that the staff to Herat observed that their relations with gov- community ratio in these FPs are very low ernment had greatly improved as a result of compared to others. One CDC did not the NSP. However, in Badghis, they thought criticize this situation but the other was dis- the government should give community satisfied. It is noteworthy that the more FINDINGS AND relations more attention, and one CDC had aware CDC expressed criticism. RECOMMENDATIONS

74 On gender relations This community showed an unusual degree The evidence suggests that where the CDC of internal cohesion, forged by their shared has assumed a full leadership role in the life in exile and close kinship. community, women’s leadership of women is more commonly recognized, though they Mixed but majority Pashtun and Tajik com- still have a subordinate role in regard to munities in Balkh and Kabul had obviously general decision-making. Where leadership convened a number of traditional leader- is shared with traditional authority figures, ship figures and other influential figures and in spite of the existence of formal when re-establishing civil governance after arrangements for women’s representation, the war. In Balkh, they included ‘elders of they have little influence and may be specif- the camps, mullahs, respected persons’. In ically excluded from participation in Kabul the District Governor of Kalakan had community decision-making. Women’s convened a council made up of members of ability to overcome these cultural con- various district and local committees straints are further hampered by their (village committees, scholars’ council, relative lack of education and knowledge of health and education councils). They public affairs. included elders, teachers, a mullah and a former commander.

The findings of the survey of Development needs and assistance leaders of matched communities Since the communities were matched with in non-NSP communities neighbouring CDCs, they defined their These communities were found to share development needs in very similar terms. many post-war development needs with Most communities lacked basic amenities their CDC counterparts and to be seeking to such as clean drinking water and housing, meet them, through various forms of tradi- social infrastructure and viable livelihoods. tional and ad hoc governance. Their discus- The leaders had all made attempts to attract sions of governance were particularly useful assistance, but only the community in Herat in shedding light on attitudes and expecta- had obtained significant assistance from tions that were still evident, as their CDC DACAAR and USAID. Most described neighbours negotiated new forms of gover- receiving insignificant amounts of relief aid, nance while seeking to avoid a confronta- or said they had received no assistance since tion with traditional authority and powerful the end of the war. The community in individuals. Nangarhar attributed this to their location in the dangerous border area with Pakistan; Community governance others in Kabul and Kundoz felt discrimi- While governance in all the communities nated against by government. was strongly shaped by traditional concepts, it was clear that war experiences had also Relations with government and modified it in some cases. A Tajik perceptions of national solidarity community in Badghis had the most The leaders of most of these communities formally constituted and probably long- had come to expect little from government. standing form of governance: a council of In Nangarhar they said that they had arbabsACKUand elders meeting to deal with adequate relations in that the district gov- general issues affecting the community, and ernment informed them of important a council of clerics responsible for hearing policies, such as poppy eradication, and legal cases. In Herat, another Tajik they got a response if they contacted them, community also had a council of elders but but they knew government could not help it was led by the Qaria Dar (headman) who them in any other way as it was fully was their spokesperson to government. occupied with security. Other communities in Badghis and Balkh described relations as At the other extreme, a Pashtun community good, but governmental contact as insignifi- in Nangarhar had no regular council cant. In Kabul and Kundoz they felt they had meetings but the Imam and elders met been unfairly excluded from the NSP. Only when problems had to be dealt with. in Herat did they speak of a partnership Similarly a community of Pashtun-returned with government. refugees in Kundoz had no formal governance but the elders of the extended In a similar vein to the CDCs, their percep- families who, as the household survey tion of government was naturally influenced SECTION 4: revealed, were highly respected, met to by their experience of local government. In THE ROLE OF CDCs discuss and resolve community problems. Kundoz, as with their CDC neighbours, this

75 had been negative: ‘...we do not expect arrangements for community governance, them to be supportive. There is no partner- not only out of self interest (many would be ship between government and the likely to be elected to a CDC) but also due community.’ In other communities such as to the strength of traditional custom which Balkh, Badghis and Nangarhar the govern- has held communities together in the ment was simply perceived as weak. The absence of any national cohesion. response seemed to be to expect more from NGOs than government and to try to resolve problems themselves within the In summary – community. On the general capacity of Community Development Councils Nevertheless, the majority clearly thought Capacity is a product of the interaction that a closer and more supportive relation- between the Programme and the objective ship with government should be the norm. circumstances of each community. Hence In Badghis they said ‘government and capacity in some aspects of CDC functions people should be constantly in may be successfully developed while others contact...government should know about continue to need support. As a result it is our needs.’ This translated in most cases not always the case that the longest estab- into a desire to be included in the NSP. lished CDCs are the most developed. The more disadvantaged or politically or socially Community perceptions of the National contested CDCs take longer to achieve full Solidarity Programme without Community capacity in every aspect of community Development Councils development and governance. Never- All the leaders except those in Nangarhar theless, there was clear evidence in every were aware of the NSP, and those in Kabul case of progress towards both representa- and Kundoz were actively seeking to be tive governance and community develop- included. The project funding aspect of the ment. NSP was clearly very attractive, given their failure to get other assistance. This was Five of the CDCs interviewed (in Badghis, probably uppermost in the minds of the Balkh, Herat, Kabul and Kundoz) were Kabul leaders, most of whom showed little assessed as able to function without facilita- interest in the changes in governance tion by the end of the project. Three of the involved. In Kundoz, community leaders 5 were established CDCs nearing comple- were also interested primarily in develop- tion of a project. These CDCs nevertheless ment assistance but recognized that by had outstanding issues to tackle on the channelling funding through a representa- inclusion of women, communication with tive council in the community itself, NSP the whole community, final transfer of full provided a means of implementing projects leadership and some minor administrative without corruption. In Badghis, the concept matters. They will also continue to need of a council was welcome but it was technical assistance for complex engineer- assumed it would complement, not replace, ing projects. Seventy-five per cent of the the existing councils. Similarly in Nangarhar, CDCs visited in the course of the engineer- when NSP was explained to them, the ing survey in Kabul were also judged to have leaders were attracted to it but also had ACKUachieved this level of capacity, as well as a doubts about it replacing their leadership. CDC visited in a rapid appraisal in Laghman. In Balkh on the other hand, the leaders expressed interest in NSP both for its devel- The majority of the CDCs interviewed (13 opment potential and the contribution to including one women’s shura in Balkh), national solidarity. They were also prepared were assessed as ‘able to function but with to consider new forms of governance, difficulty’ due to their own lack of manage- including participation by women. In Herat ment and leadership skills, lack of women’s they fully understood the NSP and were participation and/or external political and ready to sign up to it. economic constraints. They were therefore thought likely to require at least some Although this was a small and therefore further facilitation beyond the conclusion of unrepresentative sample, the responses the current project. The CDC visited in the indicate a broadly positive attitude to rapid appraisals in Nangarhar also fall into improving relations with government and to this category. the NSP (in part due to observing its progress in neighbouring communities), The four remaining women’s shura that it FINDINGS AND but a reluctance to see it replace current was possible to assess were deemed not RECOMMENDATIONS

76 able to function as envisaged in the Manual, how they had experienced the process due to lack of knowledge (as in Kabul) or of setting up the CDC and the choice exclusion (as in two CDCs in Balkh and one of projects; in Kundoz). Indications from the rapid the extent of their participation in appraisal in Laghman are that women’s governance and project implementation CDCs have a similar potential to those in today; Balkh. However, women’s shura in other their perceptions of the wider national locations, such as Nangarhar, were even less governance including recovery and empowered. This is in no way an indication development plans; and of lack of progress, rather an indication of their outlook on the future. the scale of the social impediments to their inclusion. As discussed below, continuing Since there is no comprehensive baseline facilitation in support of women’s role in data for the NSP, as well as the retrospective the CDC is necessary across the whole enquiry in the CDC communities and use of programme. information provided by the FP, a sample of householders in matched neighbouring These findings support the view that communities not participating in the NSP separate women’s groups with separate were interviewed to provide another means project budgets are necessary in the short- of distinguishing the impact of the NSP from term to develop women’s capacity. At the general trends towards recovery. same time this should not be used as a mechanism for institutionalizing their Random sampling was not feasible due to exclusion from decision-making in the the lack of accurate sampling frames for the general CDC. communities visited and the time constraints of the evaluation. The strategy The findings from interviews with leaders of adopted was first of all to develop a matched communities with no CDCs community profile from the testimony of reinforce the evidence from the CDCs and the staff of the Facilitating Partner working householders that traditional forms of gov- with the community, and then refine it in ernance, though in some cases manipulated the light of the description given by the by self-interested individuals, also CDC (or community leaders in the case of a commonly embody important aspects of matched community without CDC). These community identity and traditional were then asked to arrange for contacts knowledge that need to be incorporated in with representatives of households to the new governance. For this reason the reflect the different economic, social and gradualist and negotiated approach to ethnic groups in the different clusters establishing the CDC, adopted in most cases making up the community. A comparison of by the FP, is most appropriate. the actual samples with the recorded profiles after the conclusion of the fieldwork showed this method to have been broadly successful. In all the samples the 4.3 The Household Survey ‘typical households’ made up the majority, ACKUbut minority groups were also represented. Sample and key indicators As regards representation of ethnic for evaluation diversity, respondents from the following The household survey was designed both to ethnic groups were interviewed: Pashtun, assess the impact of the NSP in respect of its Hazara and Tajik majorities in their commu- goal and objectives, and to provide nities; Pashtun, Arab, Tajik and Uzbek evidence of progress in developing inclusive minorities in their communities. However, community governance as a means of in one respect, the survey suffered an empowering communities to improve their unavoidable bias. It was not possible, due to lives. To this end the interview schedule local cultural factors, to interview men and sought responses from a sample of house- women householders in equal numbers. holders on a number of key issues: The first limitation was the number of women researchers it was possible to take their experiences in the war and the to the field, which was constrained by the immediate post-war period including limited locations where it would have been economic conditions and forms of possible for them to work at all, and the SECTION 4: governance (the baseline from which cultural constraints on them working in a THE ROLE OF CDCs the Programme had to work); mixed team without either an accompany-

77 ing escort or another female researcher. As Secondly, different ethnic groups, a result one team of two women and one depending on their location, suffered most man worked in Bamyan and Kabul and was in different phases of the war. Pashtun able to interview a sample of equal numbers residents in Nangarhar remember the of men and women representing different attacks by Soviet forces as the time when households, and a second team of two they were under most threat, while the women and one man in Balkh interviewed period of Taliban rule, though harsh socially men and women from the same house- and economically, was relatively stable. holds. All-male teams in Badghis and Other ethnic groups, such as Tajiks in Kabul Kundoz found that they were able to and Hazara in Bamyan, experienced ethnic interview widows if they were heads of cleansing at the hands of the Taliban during household, but in Herat, Nangarhar and the war with the Northern Alliance. Paktia only men were interviewed. I have heard with my own ears from The resulting sample was as follows: 73 men Taliban that we should go to Tajikistan. and 13 women representing households in (Householder, Godara CDC, Kabul) communities with a CDC were interviewed individually in 7 of the provinces and in the Most communities were sporadically eighth province (Balkh) men and women in affected throughout the war by direct 30 households were interviewed. In violence, looting and destruction of addition, 33 men and 7 women represent- property, as well as intimidation or forced ing households in matched communities recruitment to local militias. However, some without CDCs were interviewed in the 7 stated that they were only indirectly affected provinces and 6 households in a matched on the grounds that no one in their family community in Balkh. In all, the sample rep- had been killed. The indirect effects can be resents 162 households. summarized as chronic insecurity and impoverishment. Many responded to the The principal findings of the household violence and/or economic hardship by survey are presented below in accordance migrating but these experiences also varied: with the key indicators of evaluation from hiding in the mountains for short or outlined above: the communities’ experi- prolonged periods, migrating to other safer ence of the war and immediate post-war villages and the urban areas, to emigrating period, including economic conditions and for all or most of the war to Iran or Pakistan. forms of governance; how the communities experienced the process of setting up a During the war against the Soviet invasion, CDC and the process of community devel- one Pashtun community in Kundoz was opment planning; the extent of community ‘oppressed by the Soviets and the participation in governance and project Mujahideen’ and abandoned their homes; implementation; community perceptions of and bombing, violence and looting affected wider national governance, including two Pashtun communities in Nangarhar, so recovery and development plans; and that some were driven to migrate. In the community outlooks on the future. war between the Taliban and the Northern Alliance, two Tajik communities in Kabul, a ACKUHazara community in Bamyan and a mixed The communities’ Pashtun, Usbeck and Tajik community in experience of the war Kundoz were violently driven from their Communities in different areas of the homes, which were destroyed. Six Pashtun country and in different locations in the communities in Balkh, Kundoz, Nangarhar same province experienced the war differ- and Paktia, and 4 mixed communities in ently. Two main observations can be drawn Balkh said they were affected throughout here. In the first place, their pre-war condi- the war by sporadic violence, looting and tions were also different. Remote rural areas intimidation. Three Tajik communities in in Badghis or Bamyan, for example, had Badghis, and 1 Pashtun community in experienced little development before the Nangarhar described being affected indi- war and are still poor and under-developed rectly throughout the war. today. Householders in rural Kabul, however, remember being prosperous and These different experiences have clearly having access to education and urban resulted in wide variations in the capacity of markets before they were affected by war, both individuals and communities to and are striving to recover the lives they recover from the war, and consequently the FINDINGS AND once had. extent to which they have been able to par- RECOMMENDATIONS

78 ticipate in and benefit from the NSP. One of only 4 householders, all in a community the strengths of NSP has been the ability of without a CDC, thought security had the local management teams (DRRD, FP and improved. Others in that community and OC) to adapt the NSP concept to these the CDC communities argued that security different levels of capacity. was worse. However, in the three communities in Nangarhar and two in Kundoz, a total of 11 householders said that they were now The communities’ free to lead their lives without interference post-war experience or bullying by warlords, or in other cases the The communities’ post-war experience has Taliban. been conditioned by how the war affected them as well as the present conditions in Economic opportunity their area. For example, communities in The next most commonly cited improve- Kabul and a community of returned ment (though the majority stressed that refugees in Kundoz had returned so conditions are still poor) was the increase in recently that they were still experiencing opportunities for work and economic problems of shelter. Communities in activity, largely due to freedom to circulate Nangarhar whose homes were destroyed in or work free from threat. Thirty-five per the earlier phase of the war had been able to cent of the CDC householders made this rebuild their homes, though not recover point but only two householders in a non- livelihoods, during the Taliban rule. Others CDC community (4 per cent). In the CDC in Badghis who had not migrated had expe- communities, 8 householders specifically rienced little change other than improved mentioned the NSP as having materially security. However, the overwhelming improved their lives. Seven referred to the majority (88 per cent) of householders did NSP projects in their village and two to think that their lives had improved since the infrastructure projects elsewhere as end of the war. The remaining household- evidence of economic improvement. Eight ers said that their personal (usually householders in both CDC and non-CDC economic) circumstances were unchanged communities noted increased international and only a few said things were worse. assistance to the country as a whole or in Those in communities without CDCs were their personal experience. as likely as those with CDCs to say that their lives had improved. Changes in governance In the CDC communities, 2 men (in Badghis Security and Nangarhar) and 4 women (all in Bamyan) cited the creation of a democratic We have improved in terms of security, shura as leading to an improvement in their but other improvements will take a long lives. Three householders in non-CDC com- time. In my opinion, reconstruction in munities in Kabul and Nangarhar, and 1 in a a 25-years war-ravaged country won’t CDC in Badghis, cited having an elected be a simple task. We have lost our national government as an improvement in national constitution, our army, our their lives. police, our education system and, the most ACKUimportant, our national unity all Other improvements over the country and trust in each other. Other improvements cited were clearly Therefore I can’t say that our lives have influenced by the householders’ particular improved in a short period of three years. circumstances. The 20 householders in (Householder, Bardowlet Khil CDC, Paktia) both CDC and non-CDC communities in Kabul unanimously said that just being able The majority of all householders cited to return home was the first improvement greater security/peace/stability as the main for them. A single householder in improvement in their lives. However, those Nangarhar expressed the same sentiment. communities without CDCs commonly Four householders in non-CDC communi- cited very little else that had improved. Sixty ties, 2 of them teachers, mentioned that per cent of households in CDCs and 76 per schools are functioning. Householders cent of those not in CDCs cited improved (including women) in one CDC in Balkh security as the main improvement. Fifteen welcomed freedom for women. per cent in CDC communities and 36 per cent in non-CDC communities said this was SECTION 4: the only improvement. In Nangarhar THE ROLE OF CDCs (reflecting the current level of insecurity)

79 The establishment of A full understanding of the purpose of the Community Development Councils election was much less common. Only 30 per cent understood not only the election The CDC is our representative. itself but how it had been set up, including It is our government. the selection of the electoral commission, (Men and women householders and/or the scrutiny role performed by FPs in Shah Qadam CDC, Bamyan) and DRRDs. A further 30 per cent had a partial understanding of the process, but a Our National Solidarity Council. belief in its legitimacy. Twenty-three per cent It is there to help us build our village had no understanding of how the election with our own hands and make sure that was run or, even if they had voted, exactly we don’t go back to the times of war and what it was for. devastation. It helps us stay united. (Householder in Hoftoi Sofla CDC, Herat) Pre-existing community power structures When asked about the pre-existing decision- CDC is NSP and the NSP means projects. making bodies in their communities, 58 per (Men and women householders cent described various forms of traditional in Yakhdan CDC, Balkh) council or community leaders (elders, maliks, arbabs, mullahs): Sixty-nine per cent of the householders in CDC communities had a good general We had a traditional council that was understanding of the development purpose responsible for decision-making at the and representative nature of the CDC. A community level, but definitely it was further 17 per cent had a vague or partial not as organized as the NSP one. understanding, often seeing it as simply a (Woman head of household, project management committee, or ‘some Dour Robat CDC, Kundoz) sort of council’. Nine per cent did not know what it was exactly, though they were aware A small number (4 per cent) thought that of its existence. Estimates as to how long decisions were referred to the district the CDC had been operating tended to vary, administration or the governor. It was suggesting that different people became evident that in a number of communities aware of the process at different times, or this traditional leadership was still in place dated the CDC’s establishment from their and often still representing the community first contact with it or from the inception of to the district government. In some of the elections. Where separate samples of indi- most disrupted communities, particularly vidual interviews with men and women those that had abandoned their villages for were possible, women were found to be as a number of years, traditional leadership likely as men to have a good understanding was not acknowledged. Fifteen per cent of of the purpose and principles of the CDC, respondents said that there was no means and often showed considerably more of decision-making before the CDC, while 7 enthusiasm for the democratic nature of the per cent stated that warlords or command- process. Elderly widows were the least ers had controlled them. For example, all engaged. the community members interviewed in ACKUBamyan who were driven from their homes There was a high level of participation in the into the mountains said there was no lead- elections. Eighty-three per cent said they ership before the CDC, though some had voted and many added that their whole women said the men had ‘discussed things’ family had voted, men and women. Women but they were not party to it. The CDC in the sample participated in the elections members also said there had been no in the same proportion as men. Of the 17 formal governance and that anyone with per cent who did not vote, most were any means (the class that are often leaders prevented by absence or sickness or the fact elsewhere) had not bothered to return after that they had only returned to the the war. community after the election. Several of these respondents also mentioned relatives In Kabul, on the other hand, residents in the who had voted and were aware of how the CDC village visited either said there was no election had been carried out. However, leadership or said that warlords had there were a few cases of people who chose dominated them. Nevertheless, this CDC, not to vote, or believed they had been con- like all the others visited in the Province, sciously excluded, or were simply unaware included elected or co-opted elders who FINDINGS AND of the electoral process. had at some time in the past formed a tradi- RECOMMENDATIONS

80 tional council, though they said several had had been functioning. Other critical factors died. It seems clear that after the forced that emerged during the interview process abandonment and return several years later, included: the nature of the particular the traditional leadership was no longer in community and its particular geographic, charge and military figures had dominated. economic and political context; and the success of the NSP facilitation in responding to these factors when establishing the CDC. Community perceptions of the role of Community Development Councils Eighteen per cent of respondents (in one In this section we report community CDC in Badghis, Balkh, Kundoz and in attitudes on the legitimacy of CDCs, Paktia) stated unequivocally that the community awareness of the work of CDCs, community was led by traditional leaders, community participation in NSP projects, though on the whole they also welcomed community understanding of the financial the CDC as a development council: management of NSP projects and community perceptions of the impact of Our tribal leader leads. CDCs. He is not a CDC member. (Householder in Issues of Legitimacy Bar Dawlet Khil CDC, Paktia) It is evident from the householders’ responses that CDCs were on the whole However, the CDC in Paktia was the only considered beneficial to the community and one where all respondents expressed this were gaining community standing. Sixty-five view. A further 11 per cent of respondents in per cent (including several traditional these communities described various col- leaders) expressed general satisfaction with laborative arrangements between the CDC the CDC. In some cases (9 per cent) criti- and the traditional councils, with some cisms of the CDC were couched in terms of members sitting on both: its need to prove itself in the long term. However, there were only 3 respondents In the past, local warlords and elites who expressed actual hostility to it. A larger used to run the affairs for us, but now group (33 per cent) avoided giving an the members of CDC, with the help of opinion, either because they wanted to ‘wait some other community leaders, and see’ or claiming that they did not know. lead the community here. Although many of these responses can be (Householder in taken at face value, some undoubtedly Dai Zangi CDC, Badghis) indicated a degree of dissent or unease. When the householders were asked directly From this perspective they ascribed a con- who now constituted the formal leadership tinuing political role (representation and of the community, this ambiguity became arbitration) to the traditional councils, and a more apparent: development role to the CDC. A similar number of respondents in these same com- They all represent and manage our munities also chose not to give an opinion community. There is no one outside on the matter. These responses confirm the the CDCACKU who represents the community evidence from the CDC, district and provin- to the outside Afghanistan. cial government, and FPs that where tradi- 49 The role of the NSP (Householder in Godara CDC, Kabul) tional leadership is not only entrenched but management teams, particularly is also still respected by communities (par- the FP is clearly critical in this Fifty-eight per cent said unequivocally that ticularly those composed of relatively process, some such as SDF the CDC was now the sole representative cohesive kinship groups), a gradual transfer in Kabul prepare for the body and this view was unanimous in two of authority is being negotiated with a introduction of the CDC CDCs in Balkh, one in Bamyan, one in Kabul degree of goodwill on both sides. A number with peace building exercises. and one in Nangarhar. In this last case, of traditional leaders have also clearly rec- See also the recognition by however, they stressed that the maliks or ognized that it will be in their interests to non-CDC communities that warlords were no longer the leaders, sug- accept the CDC and find a role in it.49 existing leaders are likely to gesting that the leadership had been or feel threatened by a CDC might still be contested. Community awareness of the work and seek to prevent it. of Community Development Councils The household survey provided no Seventy-eight per cent of householders evidence to suggest that there was a clear were aware of the meetings of the CDC, SECTION 4: relationship between unanimous accept- though not always the exact timetable. In a THE ROLE OF CDCs ance of the CDC and the length of time it number of cases this seems in any case to

81 have been variable. There were suggestions understanding of a development plan or from some that they felt excluded or delib- participation in priority setting. Forty-two erately uninformed. Others thought, since per cent seemed well-informed and 19 per they were not members that they did not cent vaguely aware of plans. There were two need to know exactly when it met: exceptions to this trend – a recently formed CDC in Kudoz, where it was perhaps too The CDC knows, not me. soon to expect long-term plans, and the (Householder in Dai Zangi CDC, Badghis) CDC in Kabul, where householders were not informed beyond the two projects More significantly, however, the majority already in hand, although the CDC was had little idea of what was done in CDC already negotiating further projects. In 5 meetings or how the CDC works. Forty- communities the householders all said that seven per cent had no idea and 33 per cent the CDC was not making contact for further only gave quite a vague explanation. Only 19 project funding, and overall only a quarter per cent seemed to be actually following the of the respondents were aware of such work of the CDC. Nevertheless, most approaches. believed it was working in their interests: The majority of householders, however, I am mostly at home and do not were observing and being informed of the have information about the CDC. contact between their leaders and govern- The members are good people ment. In those CDCs where the leadership and wholeheartedly work for was making these contacts, 80 per cent of the benefit of the community. the respondents were aware of it. In the (Severely disabled young man community with the most recently formed in Godara CDC, Kabul) CDC in Kundoz, and one of the CDC communities in Nangarhar, the respondents In only 5 CDC communities did the respon- were all aware that the traditional leaders dents refer to any public meetings of the continued to be the ones to do business CDC. In Bamyan 90 per cent of those inter- with district government. In a second CDC viewed and all those in Herat said they community, the majority said that the CDC attended monthly meetings where the CDC worked with government but one dissenter reported on what it was doing. In Kabul 20 said it was the malik. In Paktia, they were per cent mentioned monthly meetings. equally certain that the CDC had no contact Respondents in the most established of the but the malik might. two CDCs in Kundoz all spoke of meetings where they participated with the CDC and On all of these aspects of the functioning of in Paktia 4 out of 6 respondents mentioned the CDC women were more likely than men attending meetings. However, there were to be amongst the least informed. comments in several communities suggesting a perception of exclusion: Community participation in NSP projects As described above, direct community par- They don’t listen to us when planning. ticipation in planning the projects and their (Householder in implementation is clearly happening in Bar Dawlet Khil CDC, Paktia) ACKUsome communities; in others they were consulted by the CDC and then informed of They don’t let the poor participate. decisions. A minority of householders felt (Householder in Mobarak Shah CDC, that they had not been involved. Where Badghis) householders had been actively involved in planning a project that had yet to be imple- In any case there was no obvious correlation mented (4 CDCs in Balkh, Bamyan, Kundoz between the mention of meetings and the and Nangarhar) there was a high expecta- level of awareness of CDC business. In some tion that respondents themselves and all cases where meetings are held most respon- the community would participate in the dents did feel informed. In other cases, such implementation, though in Balkh two as the CDC in Paktia, noted above, they did households expect to be excluded. not. Meanwhile, communities in Balkh, for example, did not mention public meetings, The level of actual participation by those but were generally well informed. interviewed and their fellow villagers where projects were under way varied from CDC Community awareness of the future plans of to CDC. In one CDC in Balkh half the house- FINDINGS AND the CDC was higher, suggesting some holds interviewed were not participating. RECOMMENDATIONS

82 Two respondents in Paktia said they were Public understanding of the not available to participate and one respon- financial management of NSP Projects dent in a third CDC in Balkh, and one in an In the recently formed CDC of Dour Robat established CDC in Kundoz, simply said in Kundoz, householders did not know the they had not participated. However, the source of the funding for community devel- majority of villagers were participating in opment projects, and since the money had the work: 56 per cent were participating not yet been received, they could not say with paid labour (mostly also contributing how it was managed, though one knew that some voluntary days or repaying some a treasurer had been chosen by the CDC. wages as a cash contribution); 12 per cent, Another said, ‘[W]e have many illiterate mostly the better off, were contributing people in the community and would ask voluntary labour or, in the case of one the CDC to give time and verbally explain disabled and one elderly respondent, how the grant is spent and give a chance to voluntary supervision; 18 per cent said they the poor people to work and get daily were contributing 10 per cent (in one case labour.’ Of the remaining respondents, 54 20 per cent), that is, to the community con- per cent of men and 41 per cent of women tribution to project costs. Most had no com- interviewed individually understood that plaints about how the work was allocated, the money came from international aid and though two in Paktia said it was difficult to was channelled by government through the make time for voluntary work, and one in FP to the CDC. All the male and female Kabul thought he had been unfairly treated householders interviewed in the longest- when the foreman had to reduce the paid established CDC in Balkh also understood labour force. this to be the case. Most of the other householders (42 per cent of men, 41 per cent of All the women interviewed individually in women and 56 per cent of households in communities implementing projects Balkh) understood that the money came in adopted by the general CDC (all infrastruc- some way from government. Ten per cent of ture projects) said they, as women, were not men, 17 per cent of women and 10 per cent able to participate themselves but referred of the Balkh households did not know to male relatives who were. Women in Kabul where the money came from. One man in said they expected to participate in Yakhdan, Balkh, said it was ‘because no one women’s projects when these were set up. tells me’. When it came to discussing the level of participation by the community as a whole, When it came to understanding the financial only two CDCs (in Badghis and Herat) were processes, such as procurement and alloca- said to have had no problems with partici- tion of the Block Grants few householders, pation. In all the other communities, and particularly very few women, felt able to respondents described problems in getting follow the work of the CDC. Only one a minority of residents to participate. woman, a member of the CDC in Bamyan, Barriers to participation were identified as: though illiterate said: lack of time and poverty/needing to give priority to main livelihood, objections to I am sitting in the shura and paying contributions, illiteracy and lack of making the decisions with the men. awareness:ACKU(We) all sit together to make the decision on how to spend the money. Some people are not aware. They use The treasurer tells us how it the bridges every day but never think has been spent. who built them or how they were built. (Householder in Yakhdan DC, Balkh) Tw o other women in Bamyan thought they were informed as much as they could be in In Kabul and one of the CDCs in Kundoz, the monthly meetings. The 10 other women participation from some segments of the interviewed (77 per cent) said they had no village community was limited. One respon- understanding of how the finances were dent in Kabul said he would not work on managed. Only 19 per cent of the men felt the current project because it did not able to follow the transactions, either in the benefit his part of the village, but would par- account books or from the treasurers’ ticipate on the next one. In Balkh one reports. However, nearly half (42 per cent) householder stressed the fact that women had some idea of how the money was being were discriminated against. handled, while 36 per cent had no idea: SECTION 4: THE ROLE OF CDCs

83 AKDN ... helps us a lot because we are The NSP has helped a lot, unfamiliar people and don't know we are more united as a community anything about city issues. and have a project that gives us (Male householder hope and I can grow more wheat. in Shah Qadam CDC, Bamyan) (Male householder in Sholana CDC, Nangarhar) In Balkh, 7 per cent of households were able to explain the financial management, In this section we present the findings of 46 per cent had some knowledge, and 14 the household survey with regard to had none. Forty-seven per cent of all community perceptions of the impact of respondents said they left it to the CDC and CDCs on enhancing community gover- its treasurer to manage the finances, which nance, deriving material benefits for they themselves could not follow in detail: community members, providing new learning opportunities, building national Well, they gave us reports on the solidarity and improving community per- expenditures; even if we ask them ceptions of government. about it every day. I don’t know how they manage it amongst themselves Community attitudes on the impact of though. Do I need to know? Community Development Councils in (Male householder community governance in Dai Zangi CDC, Badghis) The impact of the NSP on community governance was remarked on by a large More than half the women expressed this majority of the householders. This was most view. However, the expression of senti- commonly expressed as ‘unity’, ‘solidarity’, ments of distrust was rare, but those that or ‘working together’. Eighty-six per cent of expressed it also said they had no the respondents (90 per cent of women) knowledge of how the CDC works: volunteered this description of the impact of the CDC on their lives. Notably, in Godara I know that the money is given to those CDC in Kabul, the women said they had not who do some job but only Allah knows even known each other, though neigh- of what happens behind the curtain. bours, until they were able to meet in the (Male householder in Godara CDC, Kabul) women’s shura. A further 8 householders (7 per cent), when asked directly, agreed This lack of capacity has implications for that there is more unity as a result of setting ensuring accountability to the general up the CDC. Six respondents in Badghis, public, which clearly has in most cases to be Herat, Kabul and Kudoz specifically noted by oral communication, and for accountabil- that the creation of the CDC had reduced ity to funding agencies which relies on the influence of the warlords: written records that only a minority can handle. This is the key area in which there is No more use of the gun! virtually no capacity amongst women, which (Male householder in turn (see Godara CDC) limits not only in Mobarak Shah CDC, Badghis) their general participation, but the capacity of those elected as CDC representatives to ACKUWe are no longer vulnerable function effectively. to those who want us to fight. (Male Householder in Hoftoi Sofla CDC, Herat) Community perceptions of the impact of Community Development Councils A smaller majority (56 per cent) spoke of the CDC as a new system of community gov- They came together in happiness ernance that is transforming decision- and sadness and talking with making. Twenty-eight of these (24 per cent) each other to solve problems. also referred to the project management (Woman householder role of the CDC. However, only a minority in Shah Qadam CDC, Bamyan) (15 per cent) saw the CDC only in terms of its project management role. An even It is a body that has united three villages. smaller minority of 11 per cent, some of (Male householder them in the more recently formed CDC, in Chogha-e-Sofla CDC, Kundoz) were unable to say what the NSP/CDC meant to them. FINDINGS AND RECOMMENDATIONS

84 Community attitudes on detailed knowledge of even one other gov- material benefits derived from ernment development plan. One of these the National Solidarity Programme respondents from Nangarhar was alarmed Sixty-five per cent of householders in all the that the government planned to eradicate communities (except the recently estab- poppy cultivation; his main source of lished Dour Robat CDC in Kundoz, where labouring work. The other two in Badghis nothing was said on this issue) said that and Kundoz provided details of several they had received some material benefits reconstruction projects in their province. from the NSP or were confident that projects in progress would benefit them kin Nevertheless, nearly half of the sample (49 the future: per cent) had a general impression that the government was working to rehabilitate the Everybody uses the road without country, although 4 respondents in discrimination, even the poorest. Nangarhar suggested that it did not have the (Male householder capacity to implement its plans. Three other in Balla Dehe CDC, Nangarhar) members of the same community were adamant that the government had no plans: However, 8 respondents in 5 of the CDC communities said that the CDC had not Government is busy arranging security changed their lives materially. One of these for the people and it has no time in Balkh specifically stated that the CDC had to think about other aspects of life. not benefited women: (Male householder in Sholana CDC, Nangarhar) The NSP just built the wall but it has not changed my personal situation. The remaining 47 per cent of respondents (Chogha-e-Sofla CDC, Kundoz) simply said that they had no knowledge of government plans, often saying they were Six respondents in the more recently illiterate, too poor or too busy. Women were formed CDC in Balkh and Kundoz, as well as particularly likely to give such responses. the more established CDC in Bamyan and Nangarhar, mentioned that the NSP had Community attitudes towards Government increased learning opportunities: A much larger number (77 per cent) asserted that the government is interested We have seen what in their community. A quarter of these cited we can do as a community. the NSP work in the village as evidence of (Male householder that interest. Others cited other infrastruc- in Balla Dehe CDC, Nangarhar) ture projects such as roads or surveys as evidence: Skills and knowledge acquired through the CDC work and through literacy and If it were not interested, you would not increased interest in education including have been asked to interview me. women’s enrolments. Electricity projects (Male householder were expected to help both children and in Dour Robat CDC, Kundoz) adults study.ACKU Nine other respondents were unsure of the Community attitudes on government’s interest, particularly those issues of national solidarity who were not fully aware of the government’s role in NSP: Building our country, building our village through our own people. We hope it is. It seems to be. (Male Householder We receive promises but nothing is done. in Hoftoi Sofla CDC, Herat) (Male householder in Chogha-e-Sofla CDC, Kundoz) NSP works to unite people and remove anarchy in Afghanistan. A total of 10 respondents said the govern- (Male Householder ment had no interest in their community. in Dour Robat, Kundoz) They were all from the two CDCs in Kundoz, the most recently formed CDC in Fifteen per cent of respondents saw the NSP Nangarhar, and the CDC in Paktia. It was SECTION 4: as contributing to national peace and soli- clear from their other responses that this THE ROLE OF CDCs darity. Very few respondents (three) had any attitude was associated with ignorance of

85 the government role in NSP or lack of If government found vocational training understanding of the Programme, and deep courses for women, especially widows, distrust of government due to bad past the women in this community can be experiences of government, particularly, self-sufficient in the next few years. local government: (Woman householder in Dour Robat CDC, Kundoz) Whoever started NSP it can’t be government, otherwise the money In one community in Balkh all the respon- would have gone to warlords or dents identified schooling as a priority. A district administration. small number of respondents (8) looked to (Male householders the wider picture, seeing improvements in in Dour Robat CDC, Kundoz) security, economic growth and governance at the national level as offering the best For example, 7 respondents in the recently hope of future prosperity: formed Dour Robat CDC had a very negative view of the district government, Empowerment of the government... which they accused of extorting bribes and as the government gets stronger, other forms of corruption. Three respon- we become more prosperous. dents said that the government had no (Male householder interest in their community. However, 4 in Hotoi Sofla CDC, Herat) respondents distinguished between the local government and national government, Fifty-nine per cent of the householders in which had demonstrated some interest. If the CDC communities declared themselves work starts in the village they will be optimistic about the future: convinced of government interest. I am very optimistic about the future because what I have today is beyond my Prospects and plans for the future wildest dreams. I even didn’t imagine When asked what would most improve their I would be back in my own birthplace lives, 89 per cent of respondents cited one day. I pray Allah almighty for developments that would affect them listening to our prayers. I always tell my directly in their daily lives. Various types of sons and grandsons to work for our infrastructure were the most commonly country and not let it be destroyed again. mentioned. Highest on the list were first (Male householder in Godara CDC, Kabul) schools and then clinics. Clean drinking water schemes were also very commonly While for a few (11 per cent) this was mostly mentioned. Respondents in 4 communities a matter of faith in God, the others also mentioned irrigation schemes and advanced some objective reasons for their roads. Electricity was mentioned by a few. confidence: One or two respondents in the poorest communities mentioned food aid. God knows better about the future. (Male householder The need for work was another priority. In in Shah Qadam CDC, Bamyan) one CDC in Nangarhar it was the primary ACKU need. In the communities where women I think people are tired of war were interviewed the need for work for and want to live in peace both women and men was stressed: and construct their country. (Male householder in Godara CDC, Kabul) Work for men and women. (Woman householder About a third (29 per cent) said that things in Godara CDC, Kabul) were generally beginning to improve. Twenty-eight were optimistic as a direct Others identified livelihoods for both men result of the NSP Programme in their and women, such as agriculture and carpet- community. Twenty-two per cent thought weaving as priorities. The one social need the whole recovery process, economic identified as a priority in more than half the recovery, reconstruction, security, govern- communities was education, including ment and international commitment, was schooling, literacy and skills training, espe- working: cially for women and girls: FINDINGS AND RECOMMENDATIONS

86 The mechanism appears to be working. The findings of the Household Survey (Male householder of non-NSP matched communities in Mobarak Shah CDC, Badghis) The purpose of including these communities in the evaluation was to compare them Others were much less enthusiastic; 18 per with the CDC communities in relation to a cent said they were confident that at least common set of indicators, in order to disen- there would not be a return to war, and a tangle changes observed by the CDC com- further 18 per cent cited improved security munities which can be ascribed to the as the main reason why they could get on impact of the NSP from those which are with their lives: attributable to general post-war trends. This required that communities should be We hope that the government changes for selected that matched as far as possible the the better and we pray for its stability. geographic location, ethnic mix and socio- People are satisfied with their lives economic conditions of at least one of the today and hopeful about the future. two CDC communities researched in the (Householders same region. Moreover, it was also in Shah Qadam CDC, Bamyan) important, for purposes of impact assessment, that the communities should also A further 30 per cent said they were hopeful share similar experiences of the war and or conditionally optimistic about the future, immediate post-war period, including still clearly fearful that the improvements economic conditions and forms of gover- they have experienced could be reversed: nance.

I don’t know but I am happy The following analysis therefore examines our village should be supported. those aspects of community life and per- (Woman householder ceptions that the NSP aims to transform, in Shah Qadam CDC, Bamyan) and compares the responses in these communities with those of the CDC communi- The 7 per cent who expressed pessimism ties discussed above. about the future gave quite specific reasons for their opinion. For a widow in Badghis, Pre-existing community power structures the economic prospects for her and her Descriptions of the character of community children were so bleak she could only fear leadership in these communities were for the future. One respondent in Herat said similar to their CDC counterparts. Forty- the future now depended on the govern- three per cent of respondents (all men or ment and how strong it could be. Four mixed household groups) said that a respondents in Nangarhar and Paktia council of elders or of elders and clerics thought that the power of the warlords governed the community. In some cases, would prevent any improvement. A house- such as Kalakan in Kabul, these had recently holder in Kundoz could see no prospect of re-established a council after the end of a better future as long as the local govern- Taliban rule. They were described as: ment was ruled by corrupt individuals. Another householder in the same village Talented custodians, honest and sincere. feared ACKUthat the CDC might also be taken (Male householder in Mangal Abad, over by corrupt maliks: Kundoz describing the 3 leaders of the community interviewed by the I am not very confident because the research team) government offices particularly at the district level are filled with the Mosque leaders, commanders and now corrupt and illiterate Jehadi people. they call themselves representatives. (Male householder (Widow in Kalakan Centre, Kabul) in Dour Robat CDC, Kundoz) Fifty per cent of respondents, including all I can predict that while the warlords the women interviewed, referred not to a are in power, our country can’t improve. council but to one or two powerful individ- (Male householder uals, with titles such as ‘malik’ or ‘arbab’ in Bar Dawlet Khil CDC, Paktia) (though notably members of the same community did not always name the same leaders). For example, in the community SECTION 4: visited in Nangarhar, where 5 men named THE ROLE OF CDCs leaders in this way, others said that there

87 was no formal leadership, and later others The community in Kundoz, like their CDC described the existence of conflict over counterparts, deeply mistrusted the district community leadership. This lack of administration, and 6 respondents stated consensus, together with the evidence of that their leaders did not work with govern- disputed leadership, supports the con- ment. Three householders in Nangarhar tention that this is the failed character of also said that their leaders did not work with Afghan governance that CDC community government. Again the level of contact with members believe needs to be overcome government, or at least the level of trans- through the NSP. parency about the nature of contact, is in stark contrast with the CDC communities Community participation where it was 80 per cent. When it came to in community governance awareness of their leaders’ representations When describing how priorities were to funding agencies for assistance, 28 per decided in the community, 43 per cent said cent (all men and mixed household groups) the leaders decided and only 13 (28 per were aware of these invariably unsuccessful cent) mentioned any form of consultation. efforts. One man in Nangarhar, however, Eight of these were in a community consist- also said that they were just pursuing their ing of a single kinship group. This is in own interests. Seventy-one per cent contrast to levels of participation in CDC (including all the women) said that they communities that ranged from 50 to 90 per were not aware of any approaches to cent: funding agencies for assistance, did not know, or were certain there were none. The arbab gathers people Again, although awareness of these activities and people agree with him. in the CDCs was not universal, it was much (Male householder in Yaka Dokan, Herat) higher: 42 per cent of respondents were aware of specific approaches and 19 per Our elders take decisions and all the cent were vaguely aware. people sit together in the mosque and focus on the problems. Community perceptions (Woman householder of community solidarity in Kalkan Centre, Kabul) The majority of householders (73 per cent) described their communities as united: Thirty-nine per cent of householders (all men or in mixed household groups) said By the grace of God, Kalakan is united. they had participated in community work. (Male householder Fifteen per cent said they had not partici- in Kalakan Centre, Kabul) pated. Another 15 per cent said they were willing but had not been asked. A third of However, this has to be seen in the light of the respondents did not answer this the fact that 50 per cent said they all question. Participation in community belonged to the same kinship group and projects in the CDC, in contrast, was found were therefore naturally united. If there to be over 80 per cent. were any disagreements they were clearly unlikely to discuss them with strangers. In a Community-Governmental Relations ACKUmixed community in Kabul, opinions were Fifty-six per cent of householders in the divided. Men associated with the council of non-CDC communities said that their elders declared the community united, leaders contacted government as represen- while poor women denied any unity: tatives of the community: No there is no unity. If they receive Of course they work with government. anything they keep it for themselves, That is their job, but we don’t have not for poor families to address to know about it. their problems. (Male householder in Yaka Dokan, Herat) (Woman householder in Kalakan Centre, Kabul) However, two women in Kabul suggested that it was aimed at serving their own Other women spoke only of social solidarity. interests, while 13 per cent were unsure if Six men in an ethnically homogeneous there was any contact: community in Nangarhar nevertheless saw their community as deeply divided, politi- How should I know? cally and socially. FINDINGS AND (Widow in Kalakan Centre, Kabul) RECOMMENDATIONS

88 The elections divided us into Community awareness of the NSP small pieces. The elders say they Thirty-five per cent of the respondents had unify us but they do not. Too many heard of the NSP and understood its basic people think they are in charge. purpose. All of the respondents thought the (Householders in Bahsawal, Nangarhar) community would welcome the NSP and many were keen to be included in the Seventeen per cent of the respondents said Programme: that their community was not united and a further 10 per cent said nothing on the Yes, we would be happy to have subject. In contrast, CDC members were CDC/NSP in our community to improve almost unanimous in describing their com- like Shakardara, Estalef and the others. munities as united or more united as a (Woman householder direct result of setting up the CDC. In only in Kalakan Centre, Kabul) one case did a respondent say that they were already united because they were one Twenty-eight per cent had heard of it but kin. said they did not really know what it is for, or had misunderstood its purpose. In some Community perceptions of Government cases this lack of knowledge was perhaps Only 13 per cent of respondents had any more a case of not wanting to know. Eight detailed knowledge of government plans (in members of this group (all men) were several cases because they owned a radio). doubtful that a CDC would be welcomed in A further 17 per cent of respondents their community because they foresaw a (including one woman) had vague ideas conflict of interest with the existing about government policies. A large majority community leadership: (69 per cent) either said they had no knowledge of government plans or thought It would be difficult to convince the the government had no plans for the malik and elders...if there was a CDC country. Thus, while the level of knowledge with everything transparent (they) of government plans and policies is similar would lose their lucrative positions. to that in the CDC communities, the per- (Male householder ception of government is clearly different. in Mangal Abad, Kundoz) In the CDCs, the majority believe that the government has plans for reconstruction, Thirty-nine per cent had not heard of the while in the matched communities most NSP. After it was explained to them, 6 respondents had no belief in government: households in Balkh and two women in Kabul said they would certainly welcome it. The government has no plan for us. Throughout our history the Prospects and Plans for the Future government has never helped us. When asked what would most improve their (Male householder in Bahsawal, Nagarhar) lives, like their counterparts in the CDC communities, the respondents in matched Government is not interested in communities identified mainly material our affairs, the seniors are good people, inputs and their priorities were also broadly butACKU all juniors are corrupt in the similar: clean drinking water (54 per cent); present government. irrigation schemes (34 per cent); social (Male householder infrastructure such as schools and clinics in Mangal Abad, Kundoz) (32 per cent); employment and support for livelihoods – notably mentioned by half the Not surprisingly, 26 per cent of the respon- women (28 per cent); and roads (8 per dents in matched communities thought that cent). Two communities of recent return- the government had an interest in their ees, however, felt that there was still a need communities. Fifty-two per cent thought for basic relief assistance to help them the government had little or no interest and rebuild their houses. A much smaller pro- a further 19 per cent (including 2 women) portion than in the CDC communities (8 either gave no reply or said they did not per cent), spoke strongly of the need for know if the government is interested. In education, especially for women. contrast, 77 per cent of respondents in CDC communities believe that the government cares. SECTION 4: THE ROLE OF CDCs

89 If our children were educated, I think we have a bright future they would be able to help us. If I were because we have a powerful state educated, I would have responded (to the now. The NGOs help us and so does the survey) from the top of the mountain. international community. The parliament (Widow in Chaar Sangi, Badghis) is being established. We will certainly live a better life after this. Women’s vocational training and (Male householder literacy...would help the population which in Kalakan Centre, Kabul) is deprived and unaware of their rights. (Male householder I don’t see any light. in Mangal Abad, Kundoz) (Male householder in Bahsawal, Nangarhar) Only two men spoke in terms of the broader national political and economic context. The proportion expressing pessimism Significantly, 11 per cent said that getting about the future (15 per cent), though a the NSP into their community would make minority, was twice that in the CDC commu- the most impact. nities. Personal circumstances were the reason for this view in several cases. Widows Yes, I am optimistic. in two Balkh households saw their We are developing as a nation. economic prospects as bleak, and one I am in my home country now. returned refugee in Kundoz had obviously I didn’t have anything to enjoy in exile. not been ready to return when compulsorily (Male householder in Yaka Dokan, Herat) repatriated. The political context was the other reason for pessimism. Yes, because I believe in my god and have never been disappointed whatever Afghanistan’s political situation is not has happened to me in my life. stable. I returned because I was forced (Male householder in Mangal Abad, by the Pakistani authorities to leave. Kundoz) Those who work in the higher positions are living out of the country and ask If the government focusses on and deceive the poor to return. our community we will be (Male householder optimistic, otherwise no. in Mangal Abad, Kundoz) (Woman householder in Kalkan Centre, Kabul) Altogether, these communities shared some of the optimism created by the end of the I am optimistic as long as our war and signs of general recovery with their government continues to work as it CDC neighbours, but they were less likely to has in the last 3 years otherwise things view the future with confidence. Many fewer can reverse and Afghanistan will were prepared to express optimism for the again be a place of war. future based on a positive assessment of (Male householder, Mangal Abad, Kundoz) their current circumstances (rather than on faith alone or the absence of war) and more Forty-eight per cent of the respondents said ACKUwere uncompromisingly pessimistic. they were optimistic about the future. A further 32 per cent (including 5 women) In sum, the evidence from the matched said they were hopeful or conditionally opti- non-NSP communities suggests that the mistic. The main reason for expressing NSP bridges a vacuum in community gover- optimism or cautious hope was the feeling nance in the sense that it provides for that things were generally improving. greater community participation, public Twenty-eight per cent (5 women) expressed legitimacy, faith in the system of govern- this view. Another common reason for hope ment and confidence in the future. was the belief that at least there would not be a return to war (21 per cent gave this response). A rather higher proportion than in the CDC communities (19 per cent), and all the men were optimistic solely on the basis of their faith. As in the CDCs (17 per cent), some respondents were confident for the future as a result of their assessment of FINDINGS AND the general process of recovery. RECOMMENDATIONS

90 4.4 Conclusions The following observations on the character of community governance are central to our In this section summary, general conclu- considerations on the efficacy of the NSP as sions are drawn regarding: the public a mechanism of institution-building: acceptance and institutional legitimacy of CDCs; gender inclusion in CDCs; project elites inevitably tend to dominate the implementation, monitoring and sustain- CDCs – traditional leaders remain ability; perceived benefits of the NSP, and influential, the new leaders are chosen the relationship between CDCs and FPs and from the well educated and articulate, government. men predominate over women. Nevertheless the NSP process is seen by the public to be reducing the power The institutional legitimacy of of warlords and corrupt elites over the Community Development Councils communities and establishing a form of The CDC have the trust and acceptance of governance that they trust to represent the majority of the community members, in their interests. most cases (58 per cent of those questioned), as their sole representatives and all the established CDCs could explain means of internal governance. the NSP process with reasonable confidence, and understood the Nevertheless, although establishing the importance of documentation and legitimacy and acceptance of the CDC is a for transparency and accountability. process that begins with the first contacts However, though many were able to with the NSP Programme and continues maintain excellent records, the extent through the election of the council, the def- to which all the communities could inition of community priorities and the undertake such an exercise in the implementation of successful projects, it is future without an effective FP is not the NSP process by itself, or the skill of highly questionable. the facilitators alone that determine the point at which a full leadership role is Participation in decision-making and assumed. The research evidence suggests collective effort for the community is that it is the interaction between the NSP greatly increased by creation of the CDC intervention and very specific local condi- (participation in discussing community tions (of geography, development, social, priorities ranged between 50 and 90 per cultural, economic and political realities) cent in CDC communities, compared to that determines the rate of progress the matched communities where 28 per towards fully representative governance. cent described limited consultation only, Above all it is a process of negotiation and the majority had no participation. between different interest groups in the Eighty per cent in CDC communities community. Thus, for example, some CDC participated in project implementation, achieve legitimacy within their community but only half that number (all men) did at an early stage of the process, while others any community work in the matched may still share the leadership with tradi- communities. Nevertheless, whilst at the tional authorityACKU figures in the final stages of moment voluntarism is accepted, many successful project implementation. CDC members wanted some form of future financial incentive to compensate In the communities where the CDC have for the time taken from their main taken over as the primary community livelihood activities. decision-making units they are widely accepted as a positive agent for change by the recent CDC Jirga in Kabul (August all groups, and often incorporate respected 2005) was cited by many CDC members traditional leaders. In the communities to be a defining factor that influenced where the NSP concept has not been fully their perception of the NSP. People were taken up the tendency is for the CDC to be encouraged by hearing the Minister and seen as responsible for the implementation the President talking about the NSP. of a community development plan, while traditional leaders (arbab, malik, clan elders) and religious leaders continue to Gender Inclusion represent the community to government The NSP has undoubtedly strengthened the SECTION 4: and arbitrate disputes. In some cases this is role of women in governance, with the THE ROLE OF CDCs a negotiated and collaborative arrangement; election of some mixed CDCs and separate in others it is conflictual. CDCs. However, even in the most progres-

91 sive areas there is a gap in capacity between was excessive optimism regarding what the men and women, both in terms of personal community could contribute, and in some skills and empowerment. The inclusion of cases individuals have reneged on their women in the NSP in some of the conserva- promises and this has caused some division. tive areas is not as advanced as other areas. The delays in disbursement are considered For example in the Province of Nangarhar all by the CDCs to be the major problem expe- members of the CDCs are male. Women rienced. When the projects are delayed have formed their own CDCs (as specified costs rise since the original estimates were by the Manual). However, the women give undertaken, and momentum is lost. their votes to their male relatives who vote for the all male members of the CDC on their behalf. The women in the sites visited Project monitoring universally accepted this process. Please In all the field sites visited there was consider the following observations: evidence of a monitoring procedure as defined in the Manual. However, FPs play Women often do not have a direct say in the main monitoring role. In some the process of prioritization and project locations, the community’s monitoring is selection. It appears that their male complemented by whiteboards at the key relatives inform them as the decision is construction site, showing all literate being made, but feedback from women community members an updated cost, in Balkh, for example, suggests that this community contribution, instalment process of exclusion is probably causing number and targets. This reinforces latent resentment.50 ownership and transparency.

Women do have their own sets of priorities for gender specific initiatives Project sustainability – health training, micro enterprise and CDCs appreciate the need for maintenance literacy. and have in a number of locations planned a community levee either in cash or in kind The NSP gives one key benefit to (asher) to pay for one person to oversee the women. Until the female-only CDCs maintenance of the facility. However, FPs were established women were not and the OC have doubts if this system can allowed to mix outside of their be maintained in the long run. The sustain- household. Now, through the CDC, ability of diesel generators appears to be women can meet to discuss both the particularly problematic as fuel costs have NSP and other matters. The female- risen substantially since the generators were only CDCs have become a forum for installed. It is noteworthy that in several discussion on other relevant issues CDCs, the project was complete but a (health, domestic violence, literacy, etc) ‘Project Completion Certificate’ was not that women could not discuss before forthcoming. The OC definition of comple- for want of a reason; this is a direct tion does not correspond to that of the FPs. result of NSP. This, in the view of some of the FPs, accounts for the slow progress in terms of Nevertheless women are in most cases ACKUcompletion. It is also noteworthy that excluded from direct participation in the several communities have developed general CDC, or have only a weak voice further initiatives as a result of the NSP within it. The situation in Achin, for project. example, is even more extreme; women are not even part of the NSP process. For the men of Achin this is simply The relationship between unacceptable. Community Development Councils and the Government The District Administration in most cases Project implementation has practically no capacity to work with the 50 Note that in Paktia, women In general the CDCs are satisfied with the NSP. In addition the research from the were originally consulted by commitment and performance of the FP. CDCs, comments from the OC and FPs, FP (CARE) but that is about However, a minority had reservations about confirm that the District Administration as far as inclusion went. some aspects of their technical compe- focusses more on security than ‘develop- tence. The vast majority of CDCs provided ment’. In some cases the findings suggest contributions towards the project, either in that the District Administration is unwilling FINDINGS AND cash or in kind. However, in all cases there to work with the CDC, preferring to RECOMMENDATIONS

92 continue to work through the traditional The benefits of the elites. This has led to disillusionment within National Solidarity Programme the CDCs that their potential authority is The key benefits that the NSP brings to rural already being undermined by a traditional communities have been identified in discus- system that in some cases they believe to be sions with them as: corrupt. the formation of the CDC as a fully The relationship between CDCs and the representative council has brought unity provincial government is better, with fairly and collective purpose to previously regular contact, especially when certificates divided and dispersed communities; are presented and projects inaugurated. the CDC provides them with a voice The perception that the NSP is a govern- to government; ment programme is reinforced with NSP has enabled the establishment NSP/MRRD signs at key construction sites of community priorities and the throughout the communities. development of a Community Development Plan; There is significant evidence from our The collective implementation of fieldwork that there has never been greater projects has developed community contact between those communities with skills, improved living conditions CDCs and the provincial government. This and built community self-esteem. is true of even very remote communities that previously had virtually no contact. The joint implementation of projects has given rural communities with NSPs a huge boost of collective confidence and esteem. The relationship between the Such communities are more optimistic Community Development Councils about the future than those communities and the Facilitating Partners where there is no NSP. Without exception all In general the CDC thought they had good the communities we have visited so far working relationships with their FP. They knew that the NSP is a government found the FP staff committed, cooperative programme. The communities also under- and honest. All the NSP communities visited stand the connection between community deemed the training provided by FPs to be empowerment, collaborative decision- relevant and useful. However, in some making and enhancement of rural infra- cases, they were also aware that the FP structure, improved livelihoods and a lacked technical capacity or gave insufficient greater feeling of local and national unity. time to training and capacity-building. Simply put, rural people believe that for the first time in decades the government is FPs are under pressure to complete listening and responding to community projects; this inevitably means that there is needs. The following additional benefits can some degree of fast tracking in the process also be identified: of creating the CDC, which is often at the expense of ensuring that effective and sus- The NSP process has introduced tainable institution-building takes place, new skills to the community, which despiteACKU the fact that many FPs have the certainly need to be consolidated, but necessary community development nonetheless contribute to community expertise. confidence building, especially when it comes to approaching other donors For example, even many of the CDCs whose for assistance and using the CDC members are literate find the forms (pro- as a problem-solving forum. curement, accounting, and sub-project completion forms) too complicated, and are The intrinsic projects in the sites visited content to rely on FPs to ensure their com- were generally well designed and pletion, in some cases just signing already constructed appropriately. In particular, completed forms. In districts where the vast those projects which bring multiple majority of all CDC are illiterate, there is benefits are especially noteworthy, such little option but for FPs to complete all the as the culvert/road, protection forms. This inevitably means that CDCs are wall/intake, boring well projects, and not equipped to face a future without FPs. tended to benefit the most number of people regardless of economic status or SECTION 4: participation in the CDC process. THE ROLE OF CDCs

93 The NSP facilitates other community- munities are therefore less reactive and led initiatives that could not otherwise more proactive, and have a significantly have been undertaken. Additional more favourable opinion of the govern- infrastructure is often added to the ment. This is underpinned by optimism for NSP project which enhances the value the future that non-NSP communities do of the NSP, demonstrates community not share. The non-NSP communities have a ownership and initiative, and to an strong distrust for government and little extent augurs well for the sustainability faith in its ability to address their problems. of the project in the future. Indeed, there are many misplaced perceptions about the government and There is also some evidence of Afghanistan in general, because there has neighbouring CDCs combining available not been any formal contact with govern- resources in order to be able to facilitate mental organizations to clarify the facts. As a bigger project (such as a through one villager put it in a non-NSP community, road). ‘the government has done nothing for us’.

The link between NSP projects and poverty reduction at a community level varies from one community to another. 4.5 Recommendations for For example, some of the NSP sites Community Development Councils visited were associated with several discernible poverty reduction benefits We suggest a broad range of recommenda- which included the ability to: grow more tions for CDCs aimed at improving project produce, especially cash crops such as delivery through simplification of bureau- sugar and cotton, and sell the surplus; cratic processes, and enhancing gender- adopt year round cultivation; and balanced institution-building and capacity generate more income which is development at the local level through spent within the community. processes of consolidation.

The communities also benefit from cheaper goods because of improved Simplification transport; a reduction in transport costs; greater levels of protection against natural disasters; better levels Recommendation 32 of communication; and higher levels The Disbursement system is too onerous of education. and should be made in one instalment.51

Direct benefits can also be perceived in relation to poppy eradication objectives at the local level through alternative Recommendation 33 livelihood NSPs. However, it is While the fund transfer mechanism system recognized that the effects in this has improved through the delegation of regard are fairly limited and poppy approval to the Provincial OC, and by cultivation is still deemed to be ACKUreducing the number of instalments, we lucrative. still believe that much could still be done to speed up the approval process and dis- In summary then, the NSP must be viewed bursement process through, for example: a as a long-term process; the NSP is a radical less bureaucratic CDC and project formu- programme in the context of Afghanistan lation processes; allowing villagers to and it is unrealistic to expect lasting change establish a bank account where the money within a short time frame. For example, might be deposited, rather than having to female participation is highly problematic in bring the money to the village and, not the Eastern Region, and Nangarhar in par- least, by giving the villagers a fixed date ticular. The east is a very conservative area when the funding will be available. 51 This recommendation has and FPs and the OC acknowledge that an been adopted post-publication increase in female participation will only of the PRDU’s Inception Report, occur gradually, a point certainly borne out November 2005. by this research. Nonetheless, NSP communities have far more tools than non-NSP communities for envisaging problems, FINDINGS AND linking priorities and planning. NSP com- RECOMMENDATIONS

94 Consolidation growth programmes should only be rolled out on a strategic basis in areas where CDCs have become socially embedded and are Recommendation 34 capable of acting benevolently. A greater focus should be placed on effective social mobilization, capacity development and institution-building. This is especially relevant in CDCs where the vast Recommendation 37 majority of people are illiterate. Again, a Continued support should be given to failure to adopt a more realistic perspective women-only CDCs. The gradualist will mean that the FPs will continue to be approach to more significant women par- ‘Implementing Partners’, placing the long- ticipation within the NSP process should term sustainability of CDCs at risk. A twin also continue, and where possible women- track process of consolidation and only priorities should be addressed as a expansion should be devised. A Phase 2 priority. A separate NSP fund for projects Consolidation Strand should be aimed at targeting women and children should be CDCs who have successfully completed sub- created and bids encouraged, but this projects. An action zone approach should needs to be accompanied by the strength- be deployed where appropriate within this ening of women’s capacities within the strand whereby CDCs sharing common CDP CDC. These findings support the view that goals should be encouraged to engage in separate women’s groups with separate joint programming to meet community pri- project budgets are necessary in the short- orities and achieve economies of scale. The term to develop women’s capacity. At the Phase 2 Expansion Strand should focus on same time this should not be used as a the strategic roll-out of the NSP to ensure mechanism for institutionalizing their nation-wide coverage of the NSP, but with a exclusion from decision-making in the bias towards integrating vulnerable commu- general CDC. nities.

Recommendation 38 Recommendation 35 There is significant concern about the long- In order to ensure the long-term survival of term sustainability of CDCs once NSP CDCs, the NSP process needs to be incen- projects have been completed. It is tivized. We recommend the use of ‘top-up’ therefore recommended that CDCs should grants and ‘matching funds’ to reward assume a broader range of responsibilities CDC initiatives on NSP priority areas such with community development planning as gender based and alternative livelihood and programming to provide them with an programming. ongoing role in community governance. This should be introduced through a phasing process linked to the attainment of certain levels of capacity. The new responsi- Recommendation 36 bilities could include: resolving internal Where appropriate,ACKU certain projects should community disputes (e.g. land, water have a component which should specifi- rights); bargaining with traders; sharing cally benefit the poorest of the poor and lending risk; bargaining for better share encourage pro-poor growth. In the future cropping arrangements; bargaining there will need to be more emphasis on between CDCs and developing district plans poverty reduction initiatives that focus on and projects, thus achieving economies of livelihoods rather than physical infrastruc- scale; and the registration of births, ture. Our research findings suggest that marriages and deaths. A more ambitious there is a desire to consolidate community and longer term task, which is nonetheless gains made through the NSP with related worthy of consideration, is to use CDCs to initiatives for employment, income genera- collect local taxes on the basis that they tion and further skills training. However, would retain the large part of the levy for there needs to be a careful balance between community development activities, while institution-building objectives and the transferring the remaining part to govern- establishment of programmes that have a ment. genuine impact on pro-poor growth. SECTION 4: Indeed, in the medium term pro-poor THE ROLE OF CDCs

95 Lesson-learning and capacity development See above recommendations 22 and 23

Recommendation 39 In relation to engineering projects there is a need for a formalized system of appointment for ‘site managers’ by CDCs. Focussed training is required for those appointed. CDCs should provide overall project direction but a separate project management team should be appointed. CDC members should remain unpaid (to show commitment to the community) but the project management team should be paid allowances.

Recommendation 40 The recent CDC jirga was very well received by rural communities and helped to convince the cynics that the NSP was a positive step forward. Regional and national CDC jirgas should be arranged on a regular basis to reinforce the government’s position, consolidate the perceptions of existing CDC members and demonstrate the government’s support for newly created CDCs.

Recommendation 41 CDC members have benefited from ‘exposure visits’ to other local CDCs. In the spirit of a national programme advocating solidarity, provision should be made for regional or national ‘exposure visits’ to enable lessons to be learned and relationships to be formed – both of which would directly contribute to state building. ACKU

Recommendation 42 At the community level, training in clerical skills is good (to the literate), but training in artisan trades is patchy and inadequate (to the illiterate). Skills acquired should be rendered portable by issuance of commonly-recognized certificates for management, clerical and artisan skills.

FINDINGS AND RECOMMENDATIONS

96 Findings and Recommendations An Analysis of 5 National Solidarity Programme Engineering Projects

This section evaluates the quality of NSP representative of the majority views of every engineering projects. It is organised into six adult member of the community. In general, parts: analytical methodology; project most of the projects lay in the infrastructure relevance; project quality and sustainability; sector; this was especially true in provinces project management; intangible benefits; where women traditionally have little or no and key recommendations. voice. However, in some of the poorest communities microeconomic projects were chosen as they were seen to be of more immediate and direct value. 5.1 Methodology Perhaps not surprisingly, power generation Sets of data have been extracted from all the projects predominated for villages without reports submitted by the Regional any system of distributed electricity, and irri- Assessment Teams (RATs) during the first gation/water supply projects where there survey period in late October/early were severe water deficiencies. Some November 2005. Additionally, the excellent examples of ‘clean’ power (in the Engineering Consultant made personal form of micro-hydropower) were under visits to 4 villages in Kabul Province and 3 construction or had been completed. These villages in Paktia Province in order to be able contrasted with diesel-generated power to calibrate and finalize questionnaires to be schemes that were utilized where gravity used by RATs, and subsequently to be able water feeds were not available – with all the to cross-reference their collated data. disadvantages of requiring regular fuel supply and ongoing heavy maintenance, as In selecting the areas to be surveyed, an well as being environmentally unfriendly. attemptACKU has been made to use a representa- Road/bridge construction or improvement tive sample of provinces, districts and projects were common where a village’s villages (the term ‘village’ applies to rural ability to tap satisfactorily into area markets and urban villages).52 However, it is only a was being hampered. sample and it is to be expected that in the country as a whole there will be wide There can be particular limitations in gener- variances in the practical application of NSP ating electricity locally and harnessing water as far as engineering is concerned. locally. For the former, it can be difficult to 52 Figures obtained from Additionally, because of the high number of generate enough power to support signifi- ISAF indicate that wide variations variables in each location, much of the cant local business activity. For the latter, in each province exist in the analysis is inevitably qualitative by nature. local reservoirs are likely to freeze up in application of NSP between winter. rural and urban villages, from 98/02 to 35/65 percentage splits. Project cost was clearly a defining factor in 5.2 Project relevance limiting choice or scope. In a few cases, villages came up with imaginative ways of In theory, the projects prioritized from achieving synergetic benefits when those identified by each community will be combining potential resources with neigh-

97 bouring villages. The OC quoted school, of Afghanistan could be said to be at signifi- road and micro-hydropower projects where cant risk. In terms of floods and landslides, two or three neighbouring CDCs had suc- a more local appraisal would be necessary in cessfully managed cooperative projects every case – in general, preference was to from which the communities shared inputs reject potentially unsafe sites rather than and outputs. These ventures perhaps mitigate at additional cost. indicate a natural propensity to find economies of scale, at least in cases where Standards of project design and construc- the alternative is failure. In the cases of tion varied to extremes, although most were highways and electricity provision, this is appropriate and adequate. At one end of the moving into the grey area of network estab- scale one could cite the impressive micro- lishment and how that is best managed. hydropower project at the village of Here, it can still just be done from the Salakhail, Skakardar District (Kabul bottom-up, but there comes a time when Province) where relevance, specification, some kind of area or regional overwatch design, construction and sustainability were becomes necessary. It is also an interesting all covered very well, resulting in an example of local governance extending excellent project all-round. At the other end upwards rather than being imposed of the scale one could mention the school at downwards – the former arguably being Markaz-e-Dawlatabad, Dawlatabad District more sustainable. (Balkh Province) where relevance was inadequate, specification and design were sub- optimal (in terms of school size and earthquake mitigation) and construction 5.3 Project quality and sustainability standards were sometimes poor.

NSP carries an obligation for stakeholders to There appear to be satisfactory processes consider most aspects that make projects for checking engineering designs, particu- sustainable. However, much is implied larly for infrastructure where failure could through various procedures outlined in the lead to human casualties. Particular Operational Manual rather than spelt out emphasis needs to be given to ensure that definitively. The only indicator listed is the for structures, adequate provision is made requirement for an operations and mainte- for extreme snow and wind loads. However, nance plan. The need for project quality is, there was no clear chain to ensure that the by definition, essential for sustainability; this design (as checked) was that which was includes adequate/appropriate specifica- actually implemented. Although difficult to tion, design and construction. The firmly correlate, it did seem that there were Technical Manual provides adequate guide- instances where adequate designs were lines for specification and design. However, compromised by poor construction – just as important is the level of emphasis indeed, there was at least one case where it given to process as compared to physical appeared that steel reinforcement in a outcome. What was very noticeable from retaining wall had been omitted to save the received data was that process had been money. given a high priority as far as CDC empowerment and enablement was concerned, but ACKUGenerally, there was a good understanding in terms of local management of projects of the need for an operations and mainte- there was little guidance. This had an effect nance plan; however, there were mixed on project quality and sustainability, and sat- responses on how this should be done – not isfactory durability therefore relied almost always was someone nominated and trained entirely on the diligence or otherwise of for responsibility, and rarely was there a con- CDCs. The more intangible benefits of good tingency or succession plan in case of inca- process at project level were also under- pacity or unavailability of anyone emphasized by NSP. All of this is discussed nominated. Ongoing costs were a big factor more extensively in following sections of (especially for projects that would perpetu- this report. ally rely on an imported fuel supply) and whereas most CDCs had simple Mitigation/defensive measures against physical/financial plans, their biggest natural disasters were sometimes specified concern was whether the community only where there was a history of such savings box would remain adequately filled events. If they were not specified, then they in the longer-term. surely would not be designed into the FINDINGS AND structure. In the case of earthquakes, much RECOMMENDATIONS

98 5.4 Project management The majority of village projects were undertaken using local direct labour (rather than In general, management and decision- by contract). This provides an excellent making has been focussed, quite sensibly, at opportunity for simple structured training CDC level with accountability to the village at artisan level and would provide an population. CDCs are responsible for organ- essential ingredient of community enable- izing and executing all projects for which ment, a key component of NSP. they receive funding through NSP. Training in management and clerical skills has been provided as necessary to CDC members. This has enabled the CDCs to be more 5.5 Intangible benefits effective in some areas of project management. However, little training appears to There is always a danger with infrastructure have been provided in site management. At projects that the degree of success is many of the sites visited, there was no assessed solely by the utility of the physical obvious person-in-charge; indeed, the output. The great strengths of NSP lie in its CDCs would either rotate people to take attention to process, but the benefits from nominal charge or even manage by this are often intangible and difficult to consensus. Where there was a site manager measure. or foreman, he was usually selected because of some distant experience in construction, In prioritizing projects, it was not always either locally or in Iran/Pakistan, but he apparent that communities had identified rarely had any formal training or qualifica- and measured the wider benefits (or dis- tion – in some cases he would also be a CDC benefits) as well as the more obvious member, in other cases he would not. focussed ones. Some of the questions that might be asked at the project selection stage For a project to come to a successful con- include: clusion, there are three areas of significant administration (in the Operational Manual Does the project have some benefit these are only loosely described, with no to everyone in the community, specific reference to site management): directly or indirectly? Does the project enhance the Project selection and subsequent microeconomy of the community? direction – empowerment Does the project provide a means by Project management – enablement which the capacities of the community Site management – enablement can be enlarged? Does the project improve the At present, CDCs attempt to cope with all opportunities for trading with three, but somewhat haphazardly and with other communities? varying degrees of success. There are points within these questions that There was also very little evidence of are crucial to the continuance and sustain- training in artisan skills (such as carpentry, ability of the NSP philosophy within every masonry,ACKU plumbing and electrical skills). In village. For as communities grow in respect some cases, unskilled labourers were of self-governance and economy, so the learning on the job from a small corps of need to have structures to support these skilled workers, and then successfully taking must continue. NSP has facilitated the their newly-acquired skills further afield. formation of these structures, but the com- However, although there can be consider- munities will need the means to accelerate able merit in learning on the job, when it is their economic growth through further not accompanied by formal training the development programmes. These will rely following shortcomings can arise: on the availability of an increasing pool of skilled labour. Failure to address this will Good and bad practice is passed on, not only jeopardise many of the successful but rarely best practice alone; features of NSP, but ironically it will also Little possibility of basic new technology widen the gap between the literate and illit- being introduced in a sustainable way; erate, as the former will gain new skills and Unfavoured can get left behind; the latter will not. Skill standards are not established, SECTION 5: tested and monitored; and A view might be taken that many people ENGINEERING PROJECTS No formal recognition of skills acquired with newly acquired skills will locate further and therefore skills can be less portable.

99 afield as they search for higher wages, and Recommendation 45 will thus denude their home communities A more tangible link should be established of the very skills that are needed. With between those who design projects and portable skills this will happen, but the those who construct them. There should be effect will be to encourage trade between a mandatory requirement for an engineer communities and there should be a net from the designer’s organization to visit benefit for the country as a whole. projects under construction at appropriate times, to ensure that respective designs are One of the key intangible benefits of NSP is being followed and that no shortcuts are that the concepts within it are relatively being taken in respect of materials and simple and easily understood by most standards that might compromise the members of every community (although the integrity of the structures concerned. bureaucracy that goes with it sometimes Auditable records of these inspections may be overprescribed, as discussed should be maintained. It is recognized that elsewhere in the report). All governance, there appears to be a shortage of suitably economic and engineering parameters qualified engineers in Afghanistan – unsur- discussed above will benefit if it is kept that prising given the scale of reconstruction and way. Parallel programmes should be development. Therefore, those projects minimized, and for this to happen min- where non-adherence to design require- istries, IOs, NGOs and other agencies that ments could lead to catastrophic failure work in these fields at community level should receive the highest priorities for should be encouraged to add volume to inspections. NSP, rather than add complexity through different implementation methodologies.

Recommendation 46 CDCs should be encouraged to identify 5.6 Key recommendations clearly who is responsible for: for the enhancement of NSP engineering projects Project selection and subsequent direction (normally the whole CDC); Project management (normally a Recommendation 43 bespoke trained team within the CDC); The need for mitigation measures against Site management (normally an natural hazards (particularly earth- adequately trained individual quakes, landslides and floods) should be (plus reserve) who is probably given a higher profile. General require- not in the CDC). ments for all projects (whether by avoidance or mitigation of risk) should be highlighted at the specification stage, and all infrastructure projects should be vetted Recommendation 47 for adequate compliance by an appropri- CDC members should not receive remuner- ately qualified engineer. ation for their activities. However, CDC ACKUmembers or local residents working in project management or site management should be rewarded – so if they are also Recommendation 44 CDC members, it should be noted that it is A Block Grant fund needs to be made for their enablement roles, not their available to the NSP to mitigate the affects empowerment roles, for which they are of disasters and terrorist attacks that being compensated. damage/destroy NSP initiatives. The availability of such a fund would be extremely useful in building social solidarity in times of crisis. A proposal should be made to NSP donors to set up a Disaster Mitigation Fund for these purposes.

FINDINGS AND RECOMMENDATIONS

100 Recommendation 48 A major initiative should be established to encourage the introduction of formal training in all the key construction skills, underpinned by the award of appropriate qualifications. The training should be village-based with instructors visiting at regular intervals. Formal instruction need not be very long (and could be conducted for groups of villages in collective sessions) but should be substantial enough to allow for follow-up on-the-job training. For each skill set, a required standard should be defined and a method of testing the standard required should be established. Initially, this standard should be applied nationally by MRRD and its agencies to all those working within NSP. In time, this should be integrated into agreed national construction training and testing standards. An important element of the initiative in order to promote portability of acquired skills would be the award (and registration) of appropriate certificates (suitably designed to militate against fraudulent use). A similar initiative is needed for training and qualifying site managers, though in this case a longer period of formal instruction will be required (say two weeks), and there would be considerable reliance on the individual’s past experience when being formally assessed for the appropriate qualification. ACKU

SECTION 5: ENGINEERING PROJECTS

101 ACKU

FINDINGS AND RECOMMENDATIONS

102 Findings and Recommendations National Solidarity Programme 6 Financial Operations

Building the capacity of national level This brief evaluation of NSP financial staff is the first priority…we should play processes is organized into three parts. It a role in the disbursement process to help begins by outlining the financial process build capacity in the disbursement process that underpins programme development; it and to develop an institutional memory. then identifies the main obstacles that have (MRRD staff member) confronted the delivery of efficient and effective financial management focussing on Corruption is not a significant problem issues of disbursement, procurement, in the NSP but where it rears its ugly liquidity and limited evidence of corruption. head it does so because the CDC is The section concludes with a short set of not functioning properly and local recommendations. warlords are abusing the process. (NSP FP stakeholder)

There are bottlenecks in the 6.1 Financial processes disbursement, procurement and various approval processes which have a very As Table 2 illustrates, the disbursement damaging impact on the ability of the process for the NSP – the period encom- OC to meet its targets; they could all be passing the stages of programme develop- removed if there was the political will. ment, from the selection of a community to (NSP donor stakeholder) the receipt of the fund transfer – is TableACKU 2. The disbursement process in the context of programme development Stage in programme development Milestone

FP contracting Contract signed, FP staff mobilized, community selected Community Mobilization CDC elected, CDC registered, bank account opened Planning CDP completed, sub-projects identified Design Proposal of first sub-project and instalment request Approval Submission of proposal by FP, approval by OC PO Forward to Kabul HQ, data entry of forms

Disbursement Fund instalment received by the CDC Implementation Completion of two sub-projects on average Evaluation Post-implementation evaluation, certificate of completion Source: amended from NSP/OC (2006), Analysis of Experiences and Lessons Learned in Program Implementation, 2003–6, Kabul, p.31.

103 organized into various stages, from the The CDC is therefore responsible for: inception of community mobilization to overseeing preparation of the sub-project implementation. community development plan; convening community-wide meetings; As Table 2 illustrates, if we track the process overseeing planning and preparation of programme development from the of individual sub-projects through ‘bottom-up’ we begin with the contracting the community project management of a FP, and the selection and then election committees; of a CDC. The CDC is responsible for over- mobilizing community contributions; seeing the preparation of the CDP, and the ensuring community participation preparation and implementation of individ- during all phases; ual sub-projects. The CDC is normally presenting the sub-project plans at comprised of a chairperson, a treasurer and appraisal; and a secretary. It is the responsibility of the managing and supervising sub-project CDC to obtain community endorsement implementation. through community forums regarding: decisions on rehabilitation or Its key role in financial matters focusses on development priorities, and the final overseeing (or directly handling) procure- selection of project proposals developed ment and financial management at the on the basis of agreed priorities; community level; and reporting to the the size and composition of community community and to the NSP on project contributions, and use of project funds; progress and the use of funds. transparency arrangements; and the arrangements for the maintenance CDCs submit sub-project proposals via the of completed projects. FP for approval by the OC PO. Once this has been negotiated the forms are forwarded to The Operational Manual provides a the OC in Kabul for data entry, and a request detailed description of the key aspects of for the disbursement of funds is made to the disbursement process from the per- the NSP MRRD’s office for Block Grant dis- spective of rural communities: bursement. However, it should be noted that this is purely for reporting reasons. The The CDC signs an overall Tripartite MRRD is not directly involved in decision- Agreement (Disbursement Form 8) making regarding the disbursement with NSP and the Facilitating Partner process, or indeed in the auditing of the dis- on behalf of the community. Depending bursement process. The paperwork is then on the number of sub-projects to be forwarded to the Ministry of Finance which managed, smaller Community Project has access to a World Bank spatial bank Management Committees may be account. The grant is then released via Da established to prepare and manage Afghanistan Bank (DAB) and deposited into individual sub-projects, but they will a CDC bank account held at the provincial report to the Community Development level. Each community with an elected CDC Council and the community-wide and a completed CDP is entitled to receive a meetings. On the other hand, if a Block Grant of up to US $200 per family, community chooses to implement only ACKUwith a ceiling of US $60,000 per community. one or two sub-projects, the Development The average Block Grant disbursed per Council may manage implementation community is US $30,000. of those projects. These representative Development Councils must be registered with NSP as a condition for receiving assistance and overseeing the 6.2 Obstacles to effective management of communally owned operational delivery property (Disbursement Form 5). A Community Project Management Four main obstacles to effective and Committee (which can be identical with efficient NSP financial management have the Development Council and should been identified in our survey: disburse- comprise at least a chairperson, secretary, ment, procurement, liquidity and limited treasurer, and storekeeper) nominated by evidence of corruption. a community-wide assembly will be able to withdraw funds and procure goods and As we noted in Section 2.2, the NSP-OC services for implementation of the project failure to meet its roll-out targets for FINDINGS AND after being registered with the NSP December 2004 to August 2006 was partly RECOMMENDATIONS (Disbursement Form 4).

104 attributable to prolonged delays that minimized through trust management, occurred in: the procurement process for capacity-building and social audit. There is securing critical goods (the responsibility of evidence, however, that the capacity of the MRRD);1 in the disbursement process CDCs to provide effective reporting to the due to the absence of Block Grant funds community and to the NSP on project (the responsibility of the WB); and in the progress and the use of funds could be inefficient transfer of funds from DAB to improved. CDC bank accounts. A further bottle-neck emerged in December 2005 due to the lack of liquidity in the Block Grant fund. Block Grant disbursements started to slow down 6.3 Key recommendations in December 2005, reaching a complete halt for financial operations in February 2006. The absence of Block Grant funds for disbursement further undermined the ability of the OC to meet its Recommendation 49 roll-out targets. It is also noteworthy that In accordance with the recommendations payments to FPs are also seriously behind outlined by the OC2 – improvement needs schedule – 93 per cent of invoices received to be made to operating processes at the from FPs for services rendered in the national level in relation to the processing second half of 2005 are yet to be reimbursed of FP contracts, the replenishment of Block (the responsibility of the MRRD). Grant funds and the payment of invoices. This would be best managed through one It is evident from our survey that there has office under the auspices of the NSP. been very little ‘political’ help forthcoming from the MRRD or the donor community to help the NSP/OC deal with these high level bottle-necks in the disbursement and other Recommendation 50 financial processes. It is therefore unsurpris- A further capacity development deficit can ing that targets have not been met. be identified in relation to the manage- However, the OC has been able to develop ment of NSP finances. A strategic plan a Memorandum of Understanding (MoU) needs to be devised by the MRRD in order from DAB to transfer grants to the provinces for its finance team to assume the role of within two weeks. The situation needs to be the OC in the disbursement process. This carefully monitored and contingency plans must involve a significant capacity devel- for alternative disbursement mechanisms opment dimension. MRRD staff will need to put into place. While it is important to build play a greater role in NSP auditing, dis- the capacity of DAB to play a disbursement bursement and other financial processes role, efficient disbursement processes are by the end of the Programme. axiomatic to the operational delivery of the NSP. As we noted in Section 5, improvements have also been made with regard to the introduction of a streamlined disburse- Recommendation 51 ment process to deal with the problems Further training needs to be provided to emanatingACKU from the initial policy of CDCs on auditing, transparency and 1 For example, 40 generators requiring three instalments per sub-project. financial reporting processes. requested by FPs in October 2004 were not delivered Our surveys picked up on very few instances until December 2005, and of corruption committed by members of 20 four-wheel drive vehicles CDCs. Indeed, the evidence from our Recommendation 52 were requested in January 2005 research is that where you have effective The NSP provides an outstanding opportu- by the PO OC but were not CDCs corruption does not occur: nity to learn about how and why corrup- ready for use until June 2005. tion takes place and what mechanisms Corruption is greater where traditional lead to or prevent corruption. Research 2 NSP/OC (2006), shuras play a more significant role. should be supported by the World Bank in Analysis of Experiences and (NSP FP stakeholder) this area. Lessons Learned in Program Implementation, 2003–6, Kabul. Indeed, the NSP provides an outstanding opportunity to learn about how and why corruption takes place, and what mecha- SECTION 6: nisms lead to or prevent corruption. As FINANCIAL OPERATIONS Section 5 illustrates, corruption can be

105 ACKU

FINDINGS AND RECOMMENDATIONS

106 Findings and Recommendations Programme 7 Enhancement

This section focusses on providing greater enced staff in the field of rural community elaboration on our key recommendations development who demand high salaries, for programme enhancement in the second while simultaneously developing the phase of the NSP. Further details are capacity of national staff. However, we provided with regard to: the proposed new believe that these aspirations can be met institutional venue for the NSP; the through a fourth option; the creation of an potential role of CDCs in future governance executive agency for the operational in Afghanistan; the putative role of the NSP delivery of the NSP. in poverty reduction; the nature of measuring the performance of the NSP; the We recommend the creation of an executive character of government capacity develop- agency, a model of service delivery currently ment required in NSP Phase 2; strategic deployed in most OECD member states and issues with regard to the management of pioneered in the UK context in the late cultural change during the transformation 1980s.4 The key features of an executive of administrative systems; and gender issues agency fit with the MRRD’s institutional and for NSP Phase 2. It must be noted, however, human resource needs: that the purpose of this section is to signal possible ways forward and not to provide 1. An executive agency is semi-detached highly detailed prescriptions.3 Effective from its parent department (MRRD), lesson-drawing requires decision-makers to with its own budget, freedom from engage in a rational search for ideas and this some aspects of departmental regulation would involve a much more rigorous (particularly in relation to recruitment), process of policy-oriented learning. with the organization under the direction of a chief executive and ACKUother unit managers often recruited through open competition. 7.1 A new institutional venue for the National Solidarity Programme 2. Executive agencies are accountable for the performance of specific operational There is currently significant debate within tasks as a corporate unit, including the MRRD and the NSP/OC over the most output-focussed performance targets suitable institutional venue for the delivery set by the parent department (in this 3 The PRDU can provide of the NSP in Phase 2 once the MRRD has case the MRRD), and the personal further details on this taken over the management of the accountability of the chief executive proposal if required. Programme. Three options have been for meeting performance targets. debated: full integration; re-tender for a 4 This is a detailed exposition new OC; or create a ‘not for profit’ semi- 3. Executive agencies are established of Recommendation 10. autonomous organization as a special through a Framework Document project under the Ministry. The third option issued by the minister of the parent is being proposed by the MRRD as it department (MRRD). Although the provides the Ministry with the ability to Framework Document is an official secure the services of high quality, experi- document, it is not a law. Hence

107 agencies are not legally distinct from the become blurred, and separating policy from departments that supervise them and, administration can lead to the emergence of of course, all of the employees are implementation gaps. public servants even though the managerial élan is often recruited For a more detailed elaboration of the from outside the public sector. executive agency model see James (2003), James (2001), Ibbs (1988), OECD (1998), The advantages of deploying an executive OECD (2002), and Peters (1997). agency model of service delivery for the NSP are at least 6-fold: For a contextual analysis of new public management see: Barzealy (2000), Hogwood Firstly, the arms-length quasi non- and McVicar (2000), Hood (1991), Hood governmental character of this form (1995), Hood (2000), Kettl (2000) and Kettl of organization will allow the MRRD to (2002). retain expert staff from within the NSP- OC, as it would have the flexibility to For new approaches to public management, pay internationally competitive salaries. see: Moore (1995), Rhodes (2000), and Stoker (2005) Secondly, the executive agency would remain accountable for the performance of specific operational tasks as a corporate unit, including output- 7.2 Community Development focussed performance targets set by Councils and future governance the parent department, the MRRD. in Afghanistan

Thirdly, the chief executive would CDCs can only be sustained if they remain personally accountable to are given ‘statutory’ responsibilities. the Minister of the MRRD for meeting (NSP donor stakeholder) performance targets. We want to see the NSP move mainly Fourthly, through retaining expert and to the governance side…CDCs are a highly skilled staff, the executive agency vehicle for local governance…people would play a key role in helping to have very high expectations and devise and deliver MRRD capacity we need to see the creation development. of sustainable structures. (NSP donor stakeholder) Fifthly, an executive agency model is more appropriate in the context of With the exception of three ministries, all a ‘whole government’ approach as the ministries included in this survey have it allows the agency greater freedom recognized the potential of CDCs as of movement to develop strategic delivery/consultative mechanisms for devel- partnerships with indicative ministries opment programming. A majority of min- and development programmes. istries were also in favour of CDCs ACKUbecoming a formal part of the system of Finally, the NSP executive agency governance (i.e. afforded constitutional would provide an institutional archive status as the lowest tier of elected govern- for institutional memory on best ment); others felt it important that CDCs practices in community based and remained independent from government in community-driven development, and order to maintain the trust of local people. take as one of its fundamental roles All the ministries consulted argued for the diffusion of best practice to greater coherence across the system of local other Afghan public organizations. governance, and the need to establish clear constitutional relationships and operating It should be noted, however, that this protocols between districts and CDCs. PRTs proposal is geared towards meeting the par- also appeared keen to use NSP-type ticular needs of the MRRD for a form of processes. International experience of organization that will allow it to retain spe- post-war reconstruction tells us that this cialist staff on internationally competitive can work, but only as long as it does not salaries to deliver the NSP. This is not to say result in producing parallel programmes – that executive agencies are not without instruments of development must remain FINDINGS AND their problems – lines of accountability can relatively simple at the community level, RECOMMENDATIONS

108 i.e. there is no need for more than one long-term capacity development strategy delivery system (the NSP). Programme which should be integrated with broader volume can be increased, but not complex- processes of civil service reform. ity. We are not in a position at this juncture, nor We also received a range of reports from is it part of our mandate, to suggest future different ministries about the existence of directions for the Afghan judicial system, several competing forms of institutions of but a role for CDCs in legal affairs would community governance at the village level. appear sensible and wholly legitimate. These included: parents-teachers’ associations, teachers’ associations, farmers associ- It is therefore recommended that: ations, women’s committees, maliks, imam etc. Our fieldwork suggests that with the exception of the malik and imam in certain Recommendation 53 villages, such organizations are largely CDCs be institutionalized into the system of mythical. However, where they do exist they governance. need to be integrated more effectively into the system of local governance.

Table 3 provides a rudimentary sketch of the Recommendation 54 domain of governance in the Islamic CDC By-laws are extended to include Republic of Afghanistan which proposes a cyclical elections. constitutional role with statutory responsibilities for CDCs at the village level,5 and the extension of the public administrative system from the district to the CDC level Recommendation 55 through the establishment of an elite of CDCs are given statutory powers in Community Development Support Officers relation to community development (CDSOs). The role of the CDSO will be to planning and programming in core provide technical support to the CDC in all programme areas (education, health, of its core competences. The establishment water, energy, sanitation and basic infra- of this technocratic elite, with attractive con- structure). ditions of service, is central to the long-term sustainability of CDCs and should be a key component of the NSP’s consolidation strategy. This proposal will also require a

Table 3. Governance in the Islamic Republic of Afghanistan

Level of Governance Administrative System Representative System Judiciary

NationalACKUPresidential Core Two-chamber Supreme Court plus Executive territory National Assembly – High Court system House of Elders (Meshrano Jirga) and House of the People (Wolesi Jirga)

Provincial Governor’s Office Elected Provincial High Court system plus Ministry Council barely functioning departments

District District Administration Elected District Councils No formal system

5 See Recommendation 31. Village malik, Community No formal system Community Development Councils Development Support SECTION 6: Officer PROGRAMME ENHANCEMENT

109 Recommendation 56 quantitatively define the microeconomic Federated structures are created at the impact of the NSP, this research has shown district level in order for communities to that the crucial microeconomic relation- interface with government agencies and ship between income earning opportuni- development programmes. ties and households interacting to determine relative prices of goods and factors of production benefits from the NSP. Projects such as road construction, culverts, Recommendation 57 intakes and irrigation have a direct positive Community Development Officers are impact on the ability of farmers to grow and recruited and trained to support and sell more produce. Moreover, savings from promote human capital development such ventures are then reinvested back into activities in rural development. the community, usually through improvements to houses and family welfare. More produce is available locally and transport costs for goods and services reduced. For example, in Sholana in Chaparhar District, 7.3 The role of the National Solidarity Nangahar farmers could only grow 50 kg of Programme in poverty reduction wheat annually, but after the NSP protective wall and intake was constructed farmers are Poverty reduction is central to the recon- now able to grow 450 kg of wheat. Due to struction of rural communities and the these economies of scale, farmers can now establishment of national solidarity in afford to hire a truck to transport and sell Afghanistan. The instability that the country the wheat in Jalalabad. In Kahoo and has suffered over the last three decades has Chinnar Kali in Laghman, the new road led to increased rates of poverty which in created by the NSP has caused the cost of turn represents a continuing threat to the transport to decrease substantially. Prior to long-term stability of the infant nation the project local people had to hire a state.6 Without improvements in people’s donkey to carry produce to and from Kahoo livelihoods that address their economic, to Chinnar Kali at a cost of Afs 400 per social and physical well being, national soli- journey. Since the road was built the same darity, peace and security will not occur. amount of produce can be taken in a car for only Afs 80. Indeed, the cost of all produce Containing and reversing poverty must has dramatically reduced due to the involve reconstruction that tackles root decrease in transport costs, and people are causes, not merely the symptoms of war. It able to transport and sell more produce is also not appropriate to think in terms of accordingly. These types of interventions merely restoring the pre-war economy, as have undoubtedly contributed to an the original source of conflict is often aggra- increase in the productive capacity of the vated by the pre-war economic conditions. community. Simple economic recovery does not inevitably lead to poverty reduction. It is also important that the indirect affects of the NSP on poverty within the If a return to violence is to be avoided, post- ACKUcommunity are considered. The projects war poverty reduction must be seen as a help people to travel further, broaden their development process directed at preventing horizons, and gain a better understanding the onset of new processes of impoverish- of life outside their community. Most signif- ment. Fundamental changes are often icantly, the increased level of interaction required which not only reflect the multi- increases solidarity. In the vast majority of dimensional nature of poverty but address the rural communities that we visited the structural causes of poverty. These respondents cited that not only has the NSP approaches include linking poverty improved people’s lives physically through reduction with: sustainable economic the intrinsic project, but the empowerment growth, good governance and community of the community has led to greater empowerment. The NSP has directly communal solidarity. The social confidence impacted on such approaches. that is derived from stability is the key to 6 UNDP, Human Development poverty reduction; so as long as a period of Report for Afghanistan, 2005. Table 4 demonstrates that the NSP has a CDC consolidation is initiated then the NSP number of direct and indirect affects on promises much. community poverty, depending on the type FINDINGS AND of project involved. Whilst it is unrealistic to Although the impact of the NSP has been RECOMMENDATIONS

110 Table 4. The impact of the NSP on community poverty

Project Intervention Direct Impact on Poverty Indirect Impact on Poverty Negative Impact *

Culvert/ Increased number of crops can Modest effect on poppy growing Arguments can occur irrigation system be grown and sold in local and as other forms of growing are over water rights. regional markets; seen to be viable; It is more economically viable to Increased savings from trading is sell produce in regional towns; invested back in the community Economies of scale; usually through housing Growing season is longer; improvements and children’s Price of produce can decrease. education.

Road improvement/ Communities benefit from As accessibility improves people Arguments can occur over construction cheaper goods and services can travel further; where exactly the road coming into the village; People can get to hospital should run. Transport of people, goods and quicker; services are cheaper; Savings from cheaper transport New markets are created for are invested in other areas; traders; Greater cohesion and solidarity Properties and/or land by the between hitherto isolated road increases in value. communities.

MHP The productive capacity People get a greater appreciation Arguments can occur over which of some light industries of life outside their communities households benefit from the are increased (e.g. milling). through television/radio; MHP; Accidents involving unstable Household payment for the kerosene lamps decrease; MHP is sometimes problematic, Many communities made a resulting in ill feeling; direct link between better It is not yet practically clear how lighting and enhanced literacy the facility will be sustained. levels.

Boreholes/ People do not have to spend so There are fewer conflicts over It is still unclear how the facility Wells much time travelling to the far accessing boreholes in other will be maintained. away wells, their time is used villages. more productively; As illnesses decrease savings are made as medicinesACKU do not need to be purchased as often.

Protective wall More land (hitherto subject to There is more confidence and It is still unclear how the facility regular flooding) is available for optimism in the prospect of a will be maintained. production; decent harvest. Culverts and intakes are often added to the protection walls (see above).

Diesel generators The productive capacity People get a greater appreciation The difference between the of some light industries of life outside their communities estimated cost of fuel and the are increased (e.g. milling). through television/radio; current cost has on occasions Accidents involving unstable rendered the diesel generator kerosene lamps decrease. impotent.

111 overwhelmingly positive, it has had some 7.4. Measuring the performance of negative effects on rural communities in the National Solidarity Programme relation to relatively few instances of intra- community conflict. These have mainly The research has shown that one of the involved petty arguments over the location main problems that the NSP is experiencing of the project and payments for the mainte- is the lack of accurate base-line data on the nance of the project. At times these dis- NSP process which undermines the subse- agreements have undermined the stability quent ability to plan and meet targets. In in the community so vital to longer term addition, a number of implementation gaps development. In many cases it is unclear have been identified by FPs and other stake- how the facility will be practically main- holders which impact on the FPs’ capacity tained. The research found limited evidence to deliver: of the community paying for the facility to be maintained either in cash or in kind; this Delays in the disbursement of Block could cause problems in the future and Grants. If there are three instalments, undermine the long-term benefits of the the average time is 9 months (three project. months for each instalment). There is now only one instalment, with just a Our field research found that projects such three month delay. This means that as protective walls/intakes, and roads/ there has to be some form of check culverts benefited the most number of and balance, so that if the community people regardless of status or the degree of do one project well they will get money participation in the NSP process. Such to do more. projects had the most significant impact on the general level of community poverty. A The operation and maintenance of villager in Nangarhar illustrated this obser- infrastructure. In many CDCs there is vation to us most cogently, ‘[W]e who are not the capacity to operate and maintain poor have always lived without electricity, it the project, especially MHPs. makes little difference to us, yet protection against the elements helps us greatly’. FP payment. FPs should be paid on the basis of performance, especially in terms Finally, the field research also enabled us to of building institutional capacity of the clarify the perception of rural communities CDC, not on the basis of the number that the most important benefit of the NSP of CDPs or CDCs created. FPs manage was improved community governance, by indicator and not by objectives; which was consolidated through the a completed project is not a complete project, and which in turn was making a CDC! positive contribution to local and national unity and stability. Relationship building. There is a lack of trust within communities and between NSP stakeholders. How do we build that trust? We should admit our weaknesses. Recommendation 58 We therefore recommend that where ACKUOn the basis of the need for more accurate appropriate certain projects should have a data collection, accurate identification of component which should specifically areas requiring more attention, the need for benefit the poorest of the poor and realistic targets and these implementation encourage pro-poor growth. In the future, gaps, a number of key performance indica- due to donor mandates, it is likely that tors (KPIs) can be devised which would be more emphasis will need to be placed on of benefit to the Ocs, and FPs in particular. poverty reduction initiatives that focus on livelihoods rather than physical infrastructure. Our research findings suggest that Criteria for designing there is a desire to consolidate community performance indicators gains made through the NSP, with related The following criteria serve as guidelines for initiatives for employment, income genera- the construction of effective NSP perform- tion and further skills training. ance indicators.

1. Indicators should measure changes in specifically those social and economic FINDINGS AND conditions that the NSP is attempting RECOMMENDATIONS

112 to improve – bearing in mind that indicators refer to working practices and according to the MRRD, NSP projects norms. ‘Outcome’ (O) indicators measure should be as ‘community-led’ as the outcomes of the NSP. possible. It is important to keep S, P and O indicators 2. The measurement of progress in any separate, because it may well be that endeavour must relate closely to the although the NSP Operating Manual – the aims agreed upon. rules (S) – specifies the importance of gender inclusion, the ‘process’ (P) may not 3. It follow from items 1 and 2 that the implement the rules very well, nor may the process of selecting indicators should ‘outcome’ (O) reflect their apparent be a participatory one in which all intention. As Peter Ambrose puts it: NSP stakeholders and a representative sample of CDC representatives The three types of indicator can be should be involved. understood by analogy with making a pudding. The S is the recipe, 4. All indicators selected must be simple, the P is the making of the pudding knowable by all (i.e. all NSP stakeholders and the O is the eating. and CDCs), and easy to monitor. Proverbially, the proof of the matter lies in the O, not in the other two.7 5. They should be precisely specified and capable of accurate measurement in However, in the case of the NSP, P is also quantitative or qualitative terms. vitally important because it is the NSP operational delivery stakeholders and CDC 6. Data relating to them must be available, members who carry out the process of or capable of being produced, for all delivery in communities, exchange ideas, NSP communities regardless of whether trust or distrust each other, form and a ‘standard’ data collection community destroy friendships and store grievances. In or not. short, policy is often made and remade in the process of implementation. 7. Movement up and down the value of any indicator should have an unambiguous positive or negative What needs to be measured? meaning in relation to the NSP’s We would suggest that there are 6 separable intentions. qualities associated with the NSP that require time series measurement: 8. The movement should, so far as community empowerment; community possible, reflect changes brought governance; community capacity; economic about by the activities initiated under development; community solidarity; and the NSP programme rather than national solidarity.8 changes stemming from other policy interventions or from non-policy Given the six qualities of the NSP that we are related factors. trying to measure, indicators may be ACKUrequired in at least 18 categories: 9. The information produced on some indicators may have a ‘downside risk’ CE (S) Community empowerment (structure) in the sense that it may feed negative CE (P) Community empowerment (process) perceptions and prejudices and must CE (O) Community empowerment (outcomes therefore be carefully managed. according to NSP stakeholders and 7 P. Ambrose (2005), beneficiaries) ‘Urban Regeneration,’ in 10.Given the range of objectives that the D. Taylor and S. Balloch (eds.), NSP is attempting to achieve, in the CG (S) Community governance (structure) The Politics of Evaluation, Bristol, selection process there should be a CG (P) Community governance (process) the Policy Press, p.49. clear understanding of the difference CG (O) Community governance (outcomes between ‘structure’, ‘process’ and according to NSP stakeholders and 8 These measures have been ‘outcome’ indicators, and of the beneficiaries) themes throughout the research. usefulness of certain proxy indicators in some circumstances. CC (S) Community capacity (structure) CC (P) Community capacity (process) SECTION 6: ‘Structure’ (S) indicators refer to formal, CC (O) Community capacity (outcomes PROGRAMME ENHANCEMENT written or legal structures. ‘Process’ (P) according to NSP stakeholders and beneficiaries)

113 ED (S) Economic development (structure) 7. The opinion of local residents on ED (P) Economic development (process) the degree to which these formal ED (O) Economic development (outcomes arrangements for the operation of according to NSP stakeholders and CDCs work out in practice. beneficiaries) 8. Attendance/participation rate of CDC members at meetings, project steering CS (S) Community solidarity (structure) groups, etc. CS (P) Community solidarity (process) 9. Assessment of the ways in which CS (O) Community solidarity (outcomes meeting agendas are drawn up according to NSP stakeholders and and chaired. beneficiaries) 10. Participation rate of non-CDC members in project steering groups, etc. NS (S) National solidarity (structure) 11. How systematic and open to NS (P) National solidarity (process) community scrutiny are CDC NS (O) National solidarity (outcomes decision-making processes? according to NSP stakeholders and 12. How accessible are CDC members to beneficiaries) their electors and how effectively do they represent electors’ interests? 13. How systematic and open to It is likely that the indicators selected to community scrutiny are CDC measure these 6 qualities will move in the accounts and reporting processes? same direction but this is not inevitable. For 14. How publicly accountable are elected example, while a gain in CS should, all CDC members for their private things being equal, lead to a gain in NS it is interests and sources of income not beyond the boundaries of possibility that are relevant to the performance that the local community could unite in of their public office? opposition to government. Moreover, a gain 15. How readily can community members in NS may be the product of other actions gain access to redress in the event of (e.g. popular national leadership). maladministration or the failure of CDCs to meet their responsibilities; The indicators to measure change in these 6 and how effective are the means qualities need to be chosen in the light of of redress available? the criteria outlined above, or a similar approach. By way of illustration, the indica- Community governance – outcomes tors for measuring change in CG could 16. The opinion of NSP operational involve the following: delivery stakeholders on the quality of the work of CDCs in relation Community governance – structure to its core responsibilities as 1. What is formally laid down about defined by the Operational Manual. the role of CDCs in the Operational 17. The opinion of local residents on the Manual? In other words, what do quality of the work of CDCs in relation ‘the rules’ specify? to its core responsibilities as defined 2. How far is appointment to CDCs made by the Operational Manual. on the basis of open competition, ACKU18. What percentage of residents can universal suffrage and secret ballot? name their CDC representatives? 3. How free from intimidation and 19. What percentage of the community bribery is the process of election itself? actually votes? 4. To what extent do the votes of all 20. How closely does the composition electors carry equal weight and how of the CDC and its community far is there equal opportunity to stand development plan reflect the choices for office, regardless of which social made by the community as a whole? 9 See D. Beetham (ed.), group a person belongs to? 21. The opinion of participating residents (1994), Defining and Measuring 5. How much consultation took place, on the positive/negative effects for Democracy, London, Sage, and with whom, in defining this set of them of being active participants in for an extremely detailed rules? NSP projects. discussion on how to develop 22. The analysis of specific key decisions indices for measuring the quality Community governance – process made in a formally participatory of community governance. 6. The opinion of NSP operational context to see the extent to which the delivery stakeholders’ on the degree voice of community representatives to which these formal arrangements was: a) decisive and b) reflective of the FINDINGS AND for the operation of CDCs work choices made by the community as a RECOMMENDATIONS out in practice. whole?9

114 The process of arriving at an agreed set of At the same time, the NSP has revealed the indicators needs to be fully participative, key skills which all modern civil servants including NSP operational delivery stake- require in order to discharge their duties holders and a representative sample of CDC effectively: representatives. Thus far the absence of Policy analysis and planning such a process has constituted a fault line – formulation, implementation, in the NSP. Following this there needs to be evaluation skills. a more technical consideration of all the Delivery skills. indicators selected from the perspective of Risk assessment skills. measurability and the availability of data at Programme management skills. the community level. An arithmetic value Financial management skills. should be attributed to each indicator, even Change management skills. if it is just a binary 0/1 (for ‘absent’ or Technological management skills. ‘present’). This calibration is necessary to Better business planning from top ensure that trends can be measured over to bottom. time as objectively as possible. All of the Partnering skills and the capacity indicators above can be expressed arith- to manage systems of collaborative metically or, in the case of attitudinal indica- governance with international NGOs tors, as values on a scale of possible and donors. responses.10 The opinion of NSP opera- The development of a service tional stakeholders on various delivery more open to people and ideas, issues should be sought through a periodic which brings on talent. survey of a structured sample of officers working at various levels of the organiza- In order to meet these challenges a tions involved, including different tiers of Professional Skills for Government Agenda management and front-line staff. The (PSG) has to be introduced, geared to opinion of CDC members and local bridging skills gaps for managers and civil residents could be evaluated using the same servants at all levels in response to the approach deployed in Section 4 – a changing environment. The NSP could kick- community power survey and a household start this process by developing its own PSG survey. Indeed, the findings in Section 4 framework which would require MRRD staff could provide the first year of time series to demonstrate skills and expertise in 4 data on this issue. areas at the appropriate level in relation to their job and chosen career path – policy, operational delivery or corporate services. These skills would be tested at the key 7.5 Government capacity career gateways. As Figure 1 illustrates, the development in National four areas would be: people management; Solidarity Programme Phase 2 financial management; programme and project management; and analysis and use The NSP urgently requires a capacity devel- of evidence. In addition, those in or aspiring opment strategy for MRRD staff that has to management positions would also need linkages with broader processes of civil to demonstrate skills in strategic thinking, service ACKUreform in Afghanistan. The focus of communications and marketing. the capacity development should be placed on developing high quality managers who This PSG framework would provide are capable of managing significant common skills training for managers and processes of cultural change, involving: aspiring managers in policy, operational delivery and corporate services. We argue The move away from command that the delivery of this common core is and control forms of management. crucial for general skills development. As The need to be more sensitive policy is made and remade in the process of to external forces and influences. implementation, it is of critical importance The need to manage the system that managers in all the career families 10 A scale of ‘1–4’ is useful of governance. understand each others’ roles, organiza- because it doesn’t allow To be more committed to high tional environment and challenges. for a ‘mid point’ response. performance. To exercise leadership that mobilizes So, for example, policy-makers need to be and energizes others. attentive to the problems of implementing SECTION 6: The need to anticipate, initiate and as well as drafting their initiatives. While a PROGRAMME ENHANCEMENT respond to change. variety of approaches to implementation

115 Figure 1: Professional skills for government

can be used, all contain dangers of signifi- 7.6 The management of cultural cant slippage between the goals and values change in the National Solidarity of the policy-makers who supposedly set Programme Phase 2 policy, and of the managers charged with implementing it. Implementation often One of the central challenges confronting involves a broad range of public, private and the NSP-OC in NSP Phase 2, as identified in external actors in the production of public Section 2, is to provide a management of services, and by implication requires negoti- strategy aimed at reculturing the MRRD ation as policy is not always clearly and from a command and control administrative precisely expressed, and there are often system to a modern administrative system. steering difficulties. All of these factors The aim of this section is to provide an suggest that policies are made and remade insight into the management of change in in a process of implementation, and that Afghan public administration. The section implementation frameworks must be will be organized around a consideration of: flexible in order to cope with unintended the drivers of administrative change and consequences of action. Hence, a broad their implications for change management; understanding of the rudiments of policy, comparative evidence on why organiza- operational delivery and corporate services tional change fails; the ingredients of is essential to the development of effective ACKUmanaging planned organizational change; public managers in Afghanistan. and the identification of guidelines to ‘good learning practice’ in change management. In sum, capacity development in Phase 2 of the NSP needs to contribute to the creation of civil servants who have the skills The drivers of administrative change necessary to manage, deliver and sustain Two main sets of pressures impact on complex programmes such as the NSP, and Afghan public organizations – domestic the initiation of a PSG framework will go pressures and external pressures. The some way towards achieving this aim. domestic pressures range from: the need for greater responsibility for initiative and leadership at all levels of public administration due to the pervasiveness of performance targets; the need to move from a short- termist ‘relief’ organization to a learning ‘development’ organization; skills shortages within the civil service and limited capacity FINDINGS AND to act; coping with resistance to reform; RECOMMENDATIONS

116 getting best value from scarce resources; In theory, the World Bank’s mandate and managing high workloads, poor prevents it from dealing directly with working conditions and fear for job security. political issues. However, in practice it is These internal problems have been exposed wholly political in the sense that it makes a by increased external pressure to engage in distinction between governance as an ana- international understandings of best admin- lytical framework and as an operational istrative practices, or what in modern framework leading it to identify three parlance is referred to as ‘good gover- aspects of governance: (1) the form of the nance’. Good governance is commonly political regime; (2) the process by which exhorted as an essential component of authority is exercised in the management of development. However, it is a deeply the country’s economic and social contested and politicized term, reflecting resources for development; (3) the capacity competing conceptions of the role of the of governments to design, formulate and nation state in a globalizing world. implement policies and discharge functions. A nation state’s credit rating is thus based The following meanings of governance on these criteria. associated with different international organizations illustrate how politically Good governance is an ideal which is nuanced the term is in practice: difficult to achieve in its totality. Very few countries and societies have come close to ‘Good governance including achieving good governance. Good gover- effective policies and administration, nance can be seen to have at least 8 major respect for human rights, the rule of law characteristics. It is participatory and thus and participatory development, is widely consensus oriented, accountable, transpar- regarded as important for sustainable ent, responsive, effective and efficient, and equitable development’. equitable and inclusive, and is underpinned (The Simons Report) by the rule of law. It assures that corruption is minimized, the views of minorities are Hence good governance is linked with both taken into account, and that the voices of top-down and bottom-up democratization. the most vulnerable in society are articulated in decision-making.

‘Effective governance means In sum, external pressure to conform to competent management of a country’s international standards of good governance resources in a manner that is open, as predicated by international organizations accountable, equitable and responsive has created significant challenges for Afghan to people’s needs’. public administration. This pressure to (Aus Aid) conform has been compounded by the significant changes which have occurred in Hence good governance is a problem of public administration on a global scale over efficient, effective and economic manage- the last two decades. These global trends ment of resources in accordance with can be organized into three main categories national priorities. of administrative reform that relate to two ACKUmain factors: the adoption of certain private sector organizational methods, and the ‘Good governance refers to the complex move towards governance and away from mechanisms through which citizens government. and groups articulate their interests, exercise their legal rights and obligations, Market inspired reforms which have and mediate their differences’. included: (UNDP) The creation of internal markets – separating purchasers from providers Hence good governance is linked with within the public sector to create bottom-up democratization through civil quasi-markets; society. Performance Contracts – establishing performance targets for public employees, especially senior executives, ‘The manner in which power is exercised rather than relying on traditional in the management of a country’s hierarchical management; SECTION 6: economic and social resources Programme review – systematic analysis PROGRAMME ENHANCEMENT for development’. of costs and benefits of individual (World Bank) programmes;

117 The privatization of state assets, and ment of Afghan public administration and certain services; have significant implications for change Co-provision – services delivered in management. The most serious challenges partnership; have been the need: to move away from Outsourcing of public services to command and control forms of manage- private contractors; ment; develop negotiating skills to be The creation of ‘one-stop-shops’ sensitive to external forces and influences as – coordination of programmes through a condition for aid; to manage a system of one delivery system to eliminate governance involving state, non-state and duplication for regulatory and/or international actors; to be more committed social service programmes; and to high performance due to donor account- Pay-for-performance – replacement ability processes; to exercise leadership that of standard pay scales of civil service mobilizes and energizes others; and to system with individualized pay based anticipate, initiate and respond to change. on performance.

Participatory reforms, which have included: Why does organizational change The introduction of quality management and development programming fail? – applying principles of quality Comparative evidence suggests that organi- management, e.g. circles, and/or zational change and development program- implementation of quality standards; ming fails when: managers do not know the The decentralization of delivery systems fundamental principles of change manage- – moving responsibility for programmes ment; when there is internal resistance to from central government to provincial change; when managers resort to ‘quick-fix’ or local governments; and and ‘simple solutions’ and do not fully Consumer or citizen rights – statement appreciate the significance of the leadership of the rights of citizens (or consumers) and cultural aspects of change. These to expect certain quality levels for problems are normally compounded by a the services rendered by public lack of urgency in confronting organiza- organizations. tional problems, the absence of committed agents of change, and a vision to direct Deregulatory reforms, which include: change or poor communication of the Personnel deregulation vision and the failure to remove obstacles to – open competition in recruitment, the vision. Essentially, poor change manage- performance-related pay, performance ment occurs when managers do not appre- targets, elimination of civil service ciate the people issues and make no controls over hiring, firing, promotion, attempt to develop a strategic approach to etc., and human resource development. Matters are Purchasing Deregulation – permitting often made worse when trainers and devel- individual organizations to make opers lack organizational credibility or are decisions about procurement, rather given limited political support. than using centralized purchasing organizations. ACKUManaging planned In addition, technological innovation is organizational change impacting on all aspects of public adminis- These obstacles to organizational change tration, from service delivery to public par- and development programming suggest ticipation in decision-making. Much of the that an effective strategic approach to reform in this area has focussed on the human resource development requires: introduction of new information systems for citizens through E-governance or front-line Developing a common vision of the delivery (e.g. booking driving tests on-line). future to establish an overarching Attempts to provide cash-till based single objective for strategic development; delivery systems for the payment of benefits Becoming a reflexive, learning have also been explored but remain politi- organization open to new ideas; cally sensitive in many states. Ensuring that others in the organization understand and share the vision through individual and group work Implications for change management (away days, training, establishment These internal and domestic pressures of working groups); FINDINGS AND increasingly inform the operating environ- Planning the change strategy through RECOMMENDATIONS detailed individual and group plans;

118 Securing ownership, commitment and communities, have been discussed as an involvement through the delegation integral part of the mainstream discussion, of authority for aspects of the change because it is the view of the evaluators that strategy and the creation of work gender is a mainstream issue that needs to incentives; be consciously addressed when evaluating Project managing the implementation every aspect of the Programme and its of the change strategy and sustaining implementation. momentum through ongoing processes of support and training; and Progress towards women’s participation Monitoring, reviewing and consolidating and empowerment for governance and the change strategy to ensure that the development is viewed as a key indicator of change becomes organizationally the success of the NSP in achieving its goals embedded. and objectives. While women in Afghan society are uniquely disadvantaged compared to men, as the household surveys Ten principles of change management reveal they share many of the same basic In sum then, it is possible from the above needs and aspirations. Both men and discussion to extrapolate 10 principles to women in the rural communities, for inform an effective change management example, define their needs in terms of the strategy. Good change management needs of the family. One successful outcome involves: of the Programme in some communities (in Kabul, for example) has been to demon- 1. developing a shared vision (‘bring strate the economic and social advantages allies close and enemies closer still’); that can flow to the family and the 2. being proactive and innovative – the community if women are empowered to most effective managers always lead assume a more active role in decision- from the front; making and economic activity. 3. always having a duty of care for all staff, irrespective of how difficult some Nevertheless, progress towards women’s individuals may be; full participation in the NSP and beyond it in 4. playing to the strengths of the team; the wider society is necessarily a gradual 5. providing a broad range of incentives and negotiated process, and needs to be to improve performance; constantly and consciously promoted, not 6. providing continuous support and just by means of programme milestones and guidance; objectives, but by the way the Programme is 7. developing new skills; implemented at every level. 8. being firm in the prevention of ‘free riding’; A first objective for the enhancement of the 9. persuading through argument rather Programme in addressing gender inequality than coercion; and should be to improve the recruitment of 10. always being honest with staff about women to work at all levels of the the state of the organization and their Programme. The work with women in the role in it. communities is restricted in many areas by ACKUthe lack of female staff. This is obviously due For further reading on change management to the same cultural factors that restrict and principles of organizational change see: women’s participation in general, and many Burnes (2004), Carnall (2002), Darwin et al FPs therefore have difficulty recruiting (2002), Dawson (2003), Drucker (1995), female staff. Even fewer women work in the Heffron (1989), Hamlin, Keep and Ash provincial or district level MRRD or with the (2001), Hood (2000), Isaac-Henry et al OC. It is necessary to tackle this problem (1997), Mintzberg and Quinn (2003) and strategically through national level Senior (2002). programme management rather than leaving it to the initiative of local actors.

Experience in other societies has shown 7.7 Gender issues for Phase 2 of that appointing women to local and national the National Solidarity Programme management positions can have a significant influence in galvanizing women’s par- Throughout this report gender relations, ticipation at the community level. This SECTION 6: the role of women in the NSP and the works in two ways – by providing a role PROGRAMME ENHANCEMENT impact of the NSP on women living in rural model for women and by demonstrating to

119 men that women can assume responsible Given the extent of the gender gap, in terms roles. While the evaluation team could not of capacity as well as empowerment, research this fully in the Afghan context, it women themselves and their facilitators see was certainly the view of several informants a need at the present time for separate in Bamyan (the province where women’s women’s shura or groups within the participation and recruitment as staff was general shura, as well as separate budgets highest) that the appointment of a woman and projects managed by and for women. as a provincial governor has had a crucial This would enable the FP and relevant gov- impact on promoting women’s participa- ernment departments to deliver targeted tion in the CDC. education and skills training to women, and allow them to acquire project management If the NSP wants to promote women’s par- capacity and leadership skills independently ticipation and recruitment at the of men before seeking to find a role for community level, a key strategy would be to themselves in the general CDC. achieve a visible female presence in its provincial and national management. From a cultural perspective, this represents a less confrontational approach to changing Another important factor for the recruit- the status of women in rural communities, ment of women to work in the communities and affords the opportunity for women to is the recognition that special attention eventually negotiate a genuine role in the (usually involving additional cost) has to be CDC, with confidence in their own capacity given to ensuring that they have appropri- to contribute. However, this tactic runs the ate living and working conditions to ensure risk of becoming institutionalized, reinforc- their safety and acceptance in the commu- ing existing gender cleavages and perma- nities where they work. Cultural norms in nently excluding women from fully partici- different areas of the country have so far pating as elected CDC representatives. dictated different measures to ensure this. In some areas, women can only work if Our household survey reveals that the accompanied by a male relative. In others ability of the majority of community women can live and work together in the members to participate in the scrutiny of field in small groups supported by male project implementation is limited by both staff. The Programme needs to consider lack of knowledge and basic education. For special measures to ensure that FPs recruit example, 77 per cent of women household- and adequately support more women. ers and 36 per cent of men had no idea how CDC finances were being managed. Others Within the CDC framework, women have had a general idea, but only 19 per cent, all not achieved full equality in terms of partic- men, could explain the financial arrange- ipation and empowerment. Afghan women ments. This suggests that the long-term identify two factors that are holding them consolidation of the CDC as fully demo- back: their relative lack of education, cratic institutions will require formal knowledge and experience outside the linkages between the NSP and national pro- home; the lack of effective support in some grammes for adult education, as well as its areas from NSP management and local gov- continuing cooperation with the Ministry of ernment. ACKUEducation in extending the school network.

The first of these problems needs to be While arrangements for the institutional tackled through specific capacity develop- inclusion of women in the CDC apparatus ment programmes for women. As regards have been negotiated in most places, and the second, recruitment of women to NSP high levels of awareness of women’s rights management may give rural women more to participation have been achieved, confidence to assume a role in the CDC, but effective participation in decision-making their recognition in decision-making and and project management remains extremely leadership roles in the community needs to limited due both to a lack of exposure to be consciously affirmed by all NSP staff, men information as well as basic education. as well as women. We did identify examples Further progress in women’s participation of good practice in both gender capacity will depend on access to specific pro- development and the promotion of grammes of adult education and skills women’s responsibilities by some provincial training (for example, through the Ministry teams, and examples of gender awareness of Women’s Affairs). but less effective practice in others. These FINDINGS AND examples of good practice should be dis- RECOMMENDATIONS seminated throughout the Programme.

120 Findings and Recommendations In Conclusion 8 – Programme Costs, Expectations and Impact

8.1 Approach with conditions afterwards. In the case of the NSP such base-line data has not been There are three common approaches to available. Moreover, where communities evaluating programme impact in post- have undergone great changes, such as conflict environments: the scientific during a war or where populations uproot approach, the deductive/inductive app- and flee to another area, there will generally roach, and the participatory approach. The be too much uncertainty to attribute impact scientific approach tends to be used by to an intervention whether before-and-after those wishing to generate quantitative data exists or not. measures of impact, for which there is a strong demand, as such information is more The inductive/deductive approach involves easily analysed, packaged and presented a more anthropological and socio-economic than qualitative information, and is a politi- approach to determining impact. The cally potent resource for those who need to approach relies heavily on qualitative inter- show donors and parliaments that interven- views with key informants, participatory tions are having an impact. Furthermore, observation, and the drawing of lessons quantitative measures of impact (presenting from other cases that are similar or compa- information on the costs of interventions) rable. It seeks to provide a narrative inter- are needed to calculate the ‘cost-per-unit of pretation of the links between an interven- impact’ (the cost-effectiveness) of an inter- tion and any impacts that occur. It under- vention – important for managers having to stands that there are often several ways of decide where to allocate scarce resources to interpreting impact, and that interpretation ensure maximum impact. However, the key requires a balanced approach based on techniques of quantitative analysis demand building a preponderance of evidence in such enormousACKU data sets that such an support of a particular interpretation. approach is normally ruled out in the evaluation of post-war reconstruction pro- In practice evaluators use a mixture of grammes except in the most exceptional cir- approaches, and the method(s) one cumstances. Such an approach was ruled chooses will also be informed by the nature out during the tendering process for this of the data available and the questions you evaluation due to the high costs of develop- are posing. We are no exception in this ing a statistically significant sample in a regard. This evaluation of the NSP has country characterized by serious security drawn on qualitative data derived from: problems. extensive national-level interviews; two workshops held with all NSP stakeholders; a Another quantitative method, commonly community power survey; a household used in many research fields, involves the survey; an engineering analysis; and docu- creation of control groups, in which before- mentary and institutional analysis. An and-after comparisons can be made of the inclusive approach to evaluating same group. Ideally, this requires the collec- programme costs and benefits is deployed tion of base-line data, so that conditions in this final section to provide a final assess- before the intervention can be compared ment of the overall impact, efficiency and

121 effectiveness of the NSP, drawing on the empirical evidence presented in Sections Figure 2: Composition of NSP total costs 1–7. It is inclusive in three respects: first, it (Dec 04–Feb 06) presents a brief overview of programme costs; secondly, an assessment is made of programme expectations given the significant operating constraints that the programme has confronted; and thirdly, in the absence of reliable base-line socio- economic data on rural communities, it identifies a range of ‘indirect’ as well as ‘direct’ benefits of the NSP. It then proceeds to an overall assessment of the impact, efficiency and effectiveness of the NSP.

8.2 Programme costs

This analysis of the programme costs of the NSP is drawn from data provided by the OC.11 Figure 2 shows the initial composition of total NSP cost commitments for the second phase of the Programme. This was projected on the basis that it was expected that by this time the NSP would have reached a plateau in its performance levels. Figure 3: Composition of NSP programme delivery costs Block Grants are calculated at 63 per cent of (Dec 04–Feb 06) total costs, and delivery activities at 37 per cent of total costs. Figure 3 reveals the composition of the delivery costs. It identifies the main delivery costs of the NSP as: the cost of FPs (61.1 per cent); OC costs (27.8 per cent); and MRRD costs in relation to consultancy (0.5 per cent) and incremental costs (2.2 per cent) – i.e. the overhead costs of the National Coordination Office responsible for overall management.

The OC has rightly observed that these MRRD costs are core functions of the Ministry and should not be included as NSP programme delivery costs. Nor should: a) ACKU the costs of consultancies (3.5 per cent) which relate to external evaluation and support for the management, rather than operational delivery function of the NSP; and b) the costs of goods which will become MRRD property at the end of the Programme. As the OC observes: 11 See NSP OC (2006), Analysis of the Experiences and After deducting these cost items the Lessons Learned in Program net programme delivery costs make Implementation, GTZ-IS, Kabul, up 34.3 per cent of the total NSP costs March 2006, pp. 21–26. including Block Grant disbursements. The ratio of net programme delivery 12 Ibid., p. 22. costs to the Block Grant disbursement is 52.2 per cent. The share of the costs of the OC within programme delivery FINDINGS AND costs is 31.5 per cent; the share RECOMMENDATIONS of the FPs is 68.5 per cent.12

122 We have already identified a broad range of 8.3 Programme expectations initiatives that could be introduced to achieve efficiency savings in the operational Table 5 presents an overview of the delivery of the NSP;13 so we proceed here obstacles to effective programming identi- from the assumption that improvements fied in the course of this evaluation, and a can be made to reduce bottlenecks in the reference to the recommendations that we implementation process as long as the OC is have identified for surmounting them. A provided with sufficient institutional and column is also presented which provides political support. Hence, the key question indications on the progress that is being that arises in relation to programme costs is: made on these issues since the publication do the outputs justify the high overheads? of our Inception Report in November 2005 The following sections seek to address this which drew attention to many of these question. problems.

Table 5. Programme obstacles

Obstacle Recommendations Progress

Programme Design and Rationale

1. Inconsistent programme objectives Recs 1 & 10 Limited progress 2. Poor population surveys exacerbate the ability to plan Rec 14 No progress 3. Poorly drawn performance indicators Rec 2 Significant progress 4. Absence of community base-line data Rec 2 Significant progress 5. Limited monitoring systems Rec 2 Significant progress 6. Dominance of a ‘relief’ rather than a ‘development’ mentality Rec 3 Limited progress 7. Narrow programme ownership Recs 3 & 8 Limited progress 8. Insufficient lesson-drawing on programme successes and failures Rec 5 Limited progress

National level Coordination

9. Ineffective donor coordination Recs 4 & 7 Limited progress 10. Poor inter-ministerial coordination Recs 4 & 7 Limited progress 11. Poor integration of national level Rec 9 Evidence of development programming progress 12. Limited capacity development of Rec 11 Evidence of centralACKU NSP/MRRD staff progress 13. Absence of exit strategy Rec 11 Evidence of progress 14. Absence of logical framework for Rec 11 Evidence of programme management progress 15. Limited human resource development Rec 11 Evidence of progress 16. Limited strategic thinking regarding Rec 11 Evidence of the management of change progress 17. Limited strategic thinking regarding quality assurance issues Rec 11 Significant progress

13 See Recommendations 1–2, 6, 9–10, 10, 13–14, 25–28, 36–38.

SECTION 8: IN CONCLUSION

123 Obstacle Recommendations Progress

Sub national Coordination and Operational Delivery Issues

18. Limited capacity at the provincial Rec 13 No evidence and district level MRRD of progress 19. Variability in the use of the CDC Rec 15 No evidence complaints procedure of progress 20. Limited evidence of conflict between CDCs and Rec 16 Evidence of traditional community organizations progress 21. Poor inter-ministerial coordination at the Rec 17 No evidence provincial and local levels of progress 22. Inadequate governmental operational and Rec 18 No evidence human resources at the field level of progress 23. Insufficient programme learning across PO Recs 19, 22 No evidence OCs and MRRD of progress 24. Capacity development of DRDs by OCs not relevant Rec 21 No evidence to implementation environment and NSP rationale of progress 25. Nature and style of training demands consistency and effectiveness with the emphasis on Recs 20, 22 No evidence technical skills training of progress 26. Skills and capacities of women CDC members Rec 23 Limited evidence are insufficient of progress 27. Insufficient programme learning across FPs Rec 25 No evidence of progress 28. The need for trust building between the Rec 26 Evidence of communities, FPs and the government progress 29. Implementation delays; Recs 27, 28, 29, 30 Evidence of ineffectual programme instruments progress 30. The need for improved partnering relations Rec 31 Evidence of between the OC and FPs progress

The Role of Community Development Councils in Project Formulation, Management and Delivery

31. Implementation delays through ineffectual Rec 32 Significant progress programme instruments; the onerous disbursement system 32. Implementation delays through ineffectual Rec 33 Evidence of programme instruments; the fund progress transfer mechanism 33. The long-term sustainability of CDCs ACKURecs 34, 35, 36, 38, Evidence of 47, 51, 53-57, 59 progress 34. The limited capacity of CDCs Recs 34, 35, 36, 39, Evidence of 40, 41, 42, 48 progress 35. The limited role and capacity of women in CDCs Rec 37 Evidence of progress 36. Over-emphasis on infrastructural projects Recs 6, 36 & 58 No evidence of progress

The Enhancement of Engineering Projects 14

14 In addition to the building 37. The danger of natural hazards to CDC projects Recs 43 & 44 No evidence of technical capacity outlined of progress in the previous section. 38. Limited monitoring of the quality of Rec 45 No evidence engineering projects of progress 39. Blurred lines of responsibility within the CDCs for Rec 46 No evidence FINDINGS AND project management of progress RECOMMENDATIONS

124 Obstacle Recommendations Progress

NSP Financial Processes

40. Implementation delays through ineffectual Rec 49 No evidence programme instruments; FP contracting of progress 41. Implementation delays through ineffectual programme instruments; maintenance of Rec 49 No evidence Block Grant Fund of progress 42. Implementation delays through ineffectual Rec 49 No evidence programme instruments; payment of invoices to FPs of progress 43. Limited attempts to build MRRD capacity with Rec 50 No evidence regard to NSP financial processes of progress

As Figure 4 (below) illustrates, these to deliver the Programme; and the absence obstacles can be divided into 3 broad sets of of a ‘whole government’ approach to the variables: ‘conceptual’, ‘operational deli- NSP reflected in a narrow conception of very’ and ‘environmental’. programme ownership. The following quo- tations indicate the scale of the challenge at The ‘conceptual’ obstacles to the NSP refer this level: to: the legitimacy of the international actors involved in the intervention; overcoming Everybody is focussed on getting through the entrenched culture of relief that has the day and meeting short-term goals. continued into the post-conflict era; the Thinking about development is impossible clash between traditional and modern orga- as long as this mentality persists nizational cultures in the system of collabo- (Senior Officer, International NGO, rative governance which has been created Afghanistan).

Figure 4: Mapping obstacles to NSP success/failure

Conceptual obstacles 1. Legitimacy of external actors 2. Relief mindset Obstacles to operational delivery Environmental obstacles 3. Command and control culture 1. Inconsistent programme objectives 1. Security 4. Narrow programme ownership and performance indicators 2. Political support 2. Poor inter-ministerial programme 3. Ineffectual donor coordination coordination 3. Gaps in strategic thinking in relationACKU 4. Weak local state institutions to human resource development 5. Intra- and inter-community conflict and programme management and 6. Inequitable growth enhancement 7. Unrealistic expectations of changes 4. Limited capacity of MRRD staff to cultural norms and values 5. Inappropriate programme instruments 8. Prevailing social and economic 6. Limited base-line socio-economic data conditions 7. Limited programme learning 8. CDC sustainability issues 9. Natural hazards

The National Solidarity Programme Programme outputs Assimilation of Actual impact of Perceived impact of Revisions in the NSP of implementing programme outputs programme outputs programme outputs Operational Manual agencies with target groups

125 A psychology of short-termism is Finally, the environmental obstacles con- all pervasive. Bureaucrats live from fronting the NSP encompass: continued day to day. There is no sense of problems with security; the lack of political collective responsibility. support due to petty jealousies between (Minister, ministries; ineffectual donor coordination in Islamic Republic of Afghanistan) support of the NSP; weak local state institutions; problems of sporadic intra and inter Effective reconstruction is about community conflict; inequitable growth effective partnership building. between regions; unrealistic expectations of Few post-conflict states can go it alone changes to cultural norms and values, par- in the short- to medium-term. They ticularly in relation to gender mainstream- are reliant on us for delivering basic ing targets and prevailing social and services and mobilizing the resources economic conditions. The following narra- they need for reconstruction. tives indicate the scope of these challenges: (Senior Officer, International NGO, Afghanistan) The rule of law needs to replace the rule of violence; until it does we cannot The main obstacles to ‘operational delivery’ function as a government because we are identified as: inconsistent programme can’t do simple things like collect taxes. objectives and performance indicators; (Minister, Islamic Republic of Afghanistan) poor inter-ministerial programme coordination; gaps in strategic thinking in relation to The key problem here (Afghanistan) is the human resource development and distance between government and the programme management and enhance- people, especially outside Kabul. There ment; the limited capacity of MRRD staff; is very little government outside Kabul. the use of inappropriate programme instru- (Minister, Islamic Republic of Afghanistan) ments which have impacted adversely on the ability of the NSP to meet its targets; We have become too reliant on limited base-line socio-economic data which foreigners as we lack knowledge about has undermined the development of reconstruction programming. We are effective monitoring systems and limited also very vulnerable to the World Bank programme learning between NSP stake- and the IMF as we don’t have the ability holders; obstacles relating to the long-term to argue with them on their own terms. future of CDCs; and coping with natural (Minister, Islamic Republic of Afghanistan) hazards. These problems are dramatized in the following narratives: The international community will soon forget us. It always does. I’ve been a civil servant under the It is my job to ensure that it doesn’t. Soviets, the Mujahideen, the Taliban (Minister, Islamic Republic of Afghanistan) and now under… and I’ve never been able to do my job properly because These variables have evidently interacted in we’ve never had the right organizational complex and often unexpected ways and structures, resources or power. have informed the context and challenges (Senior Civil Servant, ACKUof programme delivery. Hence, they must Islamic Republic of Afghanistan) be clearly understood in order to develop an appropriate strategy for programme After 23 years of war we no longer possess management and enhancement. the expertise to do our jobs properly. (Senior Civil Servant, In an ideal rational-type evaluation a Islamic Republic of Afghanistan) programme should be strictly evaluated against the achievement of its aims and We spend all our time tackling objectives. However, it is evident from this logistical issues due to the closed nature analysis of the obstacles to programme of the bureaucracy; until the system delivery that: a) a significant range of changes the NSP will never be efficient obstacles have been confronted by the NSP because there will always be someone which have constrained its capacity to meet somewhere deliberately holding things up. ambitious targets; b) although some of (Senior Civil Servant, these have been the product of the absence Islamic Republic of Afghanistan) of strategic thinking, the vast majority are outwith the control of the NSP/OC and its FINDINGS AND FPs, and are generally typical of post-war RECOMMENDATIONS

126 reconstruction development program- darity. Nevertheless, as the evaluators ming;15 and c) despite these constraints expected, it has been possible to identify significant achievements have been made. the above qualitative trends that can be Let’s turn our attention now to an assess- attributed with some confidence to the ment of those achievements. interaction of the Programme with the objective socio-economic conditions in the communities and these, if sustained, would be capable of delivering the intended 8.4 Programme benefits impact. No evidence was found of negative impact although a number of threats to the This evaluation has found evidence of at sustainability of the positive gains were least 11 sets of benefits which have been identified. Let’s review the evidence here on derived from the NSP: community impact in a little more detail.

1. increased public perceptions of national solidarity achieved through Community governance state-building – e.g. the creation of Positive trends in establishing representa- new institutional architecture at the tive and participatory governance were central (NSP-OC, DAB), provincial observed in all communities which had (PO OC), and village (CDCs) levels;16 established a CDC. By comparing this state 2. improved state-civil society relations of governance with their own accounts of as a consequence of improvements governance prior to the CDC, and with the in national solidarity;17 current governance in neighbouring 3. greater awareness of the activities of matched communities without CDCs, these government as a consequence of the trends were found to be directly attributable work of the PCU;18 to the process of establishing the CDC. 4. the empowerment of rural Progress towards improved community gov- communities through the ernance was observed in three key aspects 15 See S. Barakat (ed.), (2005), establishment of a new legitimate of the functioning of the CDC: After the Conflict: Reconstruction form of community governance;19 and Development in 5. heightened perceptions of community Leadership the Aftermath of War, solidarity achieved through processes The CDCs were clearly gaining the trust and London, I.B. Tauris. of community governance;20 acceptance of their communities. They 6. delivery of governmental capacity were capable of uniting previously antago- 16 See Sections 3, 4, 5 & 6. development (provincial and district nistic social groups and were becoming rec- level MRRD, NSP/OC, PO OC, DAB ognized as representatives of the whole 17 See Section 4. and Ministry of Finance staff);21 community. While this general trend could 7. delivery of FP capacity development be observed in all the CDCs surveyed, the 18 See Section 2. (training);22 rate of development is conditioned by local 8. delivery of community capacity factors. There are two key constraints to 19 See Section 4. development (training);23 CDCs achieving the leadership role 9. direct forms of economic development envisaged in the NSP Programme design: in 20 Ibid. through improved productive capacity more than half the communities, leadership andACKU the provision of work in relation is still shared (and in a minority contested), 21 See Section 2. to certain NSP projects;24 with traditional institutions of community 10. indirect forms of economic governance; women have not achieved a 22 Training in relation to development facilitated by: leadership role in the general CDC, or in delivering aspects of the NSP. a) increased economic activity arising some cases even in relation to the women in See Sections 2 & 3. from improved infrastructure, and their community. However, there has been a b) savings derived from lower costs trend in both these areas towards an 23 See Section 4. of production;25 and enhanced role for inclusive CDCs by means 11. improvements in the quality of rural of a gradual and negotiated process. 24 See Section 7.3. life.26 Threats to leadership 25 Ibid. As stated in the technical proposal for this The main threats to this process are mid-term evaluation, it was premature to external: collusion between corrupt district 26 Ibid. attempt to determine the impact of the administrations and powerful individuals in Programme either in terms of achieving its the community; weak facilitation, by an stated objectives (laying the foundations for inexperienced FP without local knowledge; SECTION 8: improved community level governance and and lack of political support for CDCs IN CONCLUSION poverty reduction) or in terms of the over- (including women’s CDC) from district arching aim of strengthening national soli- MRRD and the provincial government.

127 Capacity for democratic governance through a community participation A high degree of inclusion of different social approach underpinned by transparent groups has been achieved by the CDCs. accounting. Some CDCs were already devel- Women’s inclusion in governance has also oping new projects on their own initiative. been negotiated to a limited extent (they voted in most CDC elections and had some However, success in achieving this skills say in defining project priorities) but this transfer is also conditioned by local levels of still remains to be consolidated in practice. development, especially education and pro- The principle of including the whole fessional skills. Women’s capacity to run community in the benefits of the projects projects independently is particularly has been adopted and put into practice. In limited in this respect. For this reason many most cases this has involved direct partici- CDCs will not have the capacity to manage pation in defining development priorities projects without technical assistance after and choosing projects. The majority of completing a first project. This is not an householders, since they are also beneficiar- indication of failure but characteristic of the ies, participate in the NSP projects through observation that the time frame for social paid and voluntary work and contributions. mobilization and facilitation remains far too This is in marked contrast to levels of par- short in many communities. Moreover, the ticipation in community work in non-NSP opportunity to apply the skills which have communities. been acquired is dependent on the local economy and ease of access to urban and The need for accountability and trans- commercial centres. Even capable CDCs in parency is recognized by the majority of the areas of low economic activity, in remote or CDC members and their communities, but insecure areas where few NGOs or aid pro- on the whole they have confidence in their grammes operate, may find they are unable probity and integrity. However, there are to initiate new projects without assistance. problems in finding effective ways to report back to a largely illiterate population, and Threats to future very few villagers are capable of scrutinizing project management capacity the work of the CDC. Many CDCs without continuing access to technical support, facilitation and advice are It can be observed that the NSP has now likely to fail to consolidate and sustain their enabled communities to experience demo- project management capability. This in turn cratic governance for the first time, and will compromise their credibility as most community members consider it a community leaders. positive experience. The main challenge in the next stage of the Programme will be to enhance and institutionalize democratic Living conditions in the communities culture and practice. The NSP is making a positive contribution to the quality of life in rural communities. In Threats to democratic governance some cases this is demonstrably supporting The main threats to sustaining democratic poverty reduction by creating livelihood governance through CDCs would include: opportunities and direct forms of economic traditional elites reasserting themselves and ACKUdevelopment through improved productive precipitating intra-community conflict; the capacity and the provision of work in failure to afford constitutional and statutory relation to certain NSP projects.27 In other authority to the CDCs; institutionalize cases it provides for indirect forms of periodic and fair elections to the CDCs and economic development facilitated by: a) increase its competences; and the absence increased economic activity arising from of greater public involvement in, and improved infrastructure, and b) savings scrutiny of, the CDCs. derived from lower costs of production.

Community priorities in both the NSP and Capacity for planning and non-NSP communities were similar and managing development projects focussed on basic services, livelihoods and There is evidence of the transfer of project access. As a result of the participatory management skills from the FPs to the selection of priorities, the NSP projects are 27 See Section 7.3. CDCs through the NSP process. A significant in general meeting these needs. Most con- number of CDCs, after completing an NSP tribute to one or more of the following: project, were found to be capable of FINDINGS AND planning and implementing projects RECOMMENDATIONS

128 Improved health – most notably realized. For this reason, channelling future through clean water projects, development programmes, whether gov- also clinics and access to health care ernmental or non-governmental, through from road improvements clinics. the CDCs is crucial for the sustainability of the process of democratic community gov- Improved knowledge and ernance generated by the NSP. skills/education – through schools, literacy and skills training courses but also by knowledge and skills transfer National solidarity through the implementation process. The rationale behind the NSP is that by con- Electricity projects were expected to tributing to the establishment of both facilitate learning by extending the community governance and poverty time for study. reduction through a clear government initiative (though with non-governmental and Improved access and communication international partners), the Programme – most notably through road projects would strengthen national solidarity in the which increase access to markets and aftermath of many years of conflict and services, reduce the cost of goods weak government. The evidence from the brought into the villages, and facilitate field survey suggests that this rationale is contact with government and other correct. The indications are that the NSP, by external agencies. improving community governance and materially benefiting poor communities, is Direct contributions to livelihoods also contributing to a greater sense of – through short-term paid labour in community solidarity both within and the projects and sustained livelihood between communities, and between com- development through irrigation munities and government. Nevertheless, schemes, flour mills, home industry this increased trust, after decades of disillu- (carpet-weaving etc). sionment, is fragile.

Environmental protection – against Community solidarity floods and drought through the A large majority of householders inter- construction of floodwalls and viewed in CDC communities thought that reservoirs, which creates the greater unity, solidarity and cooperation space for productive work. between different groups and families within their communities was the most Nevertheless, NSP funding limits and condi- important aspect of the NSP. tions often mean that communities cannot tackle their main priorities. Hence, for Threats to community solidarity pragmatic reasons they often opt for Some householders indicated that despite meeting one of their lesser priorities. While gains in community unity, there are contin- there is some advantage in this in the short- uing sources of friction and individuals who term in terms of gaining expertise and some might cause trouble. A minority of those immediate benefit through these lesser interviewed were also reticent on this projects,ACKU expectations are then raised that subject, indicating either unease or dissent. they will ultimately be able to get funding to If future projects and the functioning of the implement their first priority. CDCs are not perceived to be fully inclusive, conflict could be re-ignited. Threats to CDC credibility and future governance National solidarity Although householders more commonly Although few householders spoke in terms cited representative governance than of national solidarity, over half of the house- material benefits as the main gain from the holders in the CDC communities had a NSP, their main preoccupation is with general awareness that the government was improving their living conditions, and they working to rehabilitate the whole country, expect the CDCs to represent them to gov- and considerably more believed that the ernmental and non-governmental agencies government had demonstrated its interest in order to secure support for further in their community. In contrast, the majority community development projects. This is of respondents in matched non-CDC com- likely to pose a threat to the credibility of munities had little or no faith in government SECTION 8: the CDCs and their capacity for representa- IN CONCLUSION tive governance if such expectations are not

129 Threats to rural perceptions Neither of these forms of measurement are of national solidarity appropriate because they both fail to take Positive perceptions of government are into consideration that the NSP is more than closely linked to the delivery of tangible just about the disbursement of Block Grants benefits in the community and therefore to meet the costs of individual projects. The subject to disillusionment if expectations essential focus of the NSP is concerned with are not fulfilled. Villagers have very little improving rural community governance, actual knowledge of government policy and capacity development and training, and gal- programmes beyond their own communi- vanizing state-civil society relations. As we ties. In the non-NSP communities this led noted in Section 7, these objectives present them to assume that nothing was being profound challenges for quantification and done. The same ignorance in the NSP com- indicator development. Key performance munities could also easily feed negative per- indicators need to be developed that show ceptions of government. how local governance and rural infrastructure development can make progress The main point of contact between the towards poverty reduction. As we noted in communities and the wider nation is at the Section 8.2, the cost of the NSP is a major district and provincial government levels. issue and must be shown to be good value The NSP has improved this relationship but for money. Let’s consider the evidence. it is still very weak. The lack of adequate response and moral support for the CDCs Overall our findings confirm that the output from local government could undermine and outcomes of NSP are serving effectively public perceptions of national solidarity. In the original objectives of the Programme: some districts the administration is corrupt the empowerment of rural communities and deeply resented by villagers. This through the establishment of a new legiti- detracts from any sense of solidarity, mate form of community governance; although some were able to differentiate increased public faith in the system of gov- between good governance at the national ernment and national solidarity; enhanced level and poor local governance. In commu- intra community relations and state-civil nities neighbouring the CDC communities, society relations; and direct and indirect there is evidence both of growing demand forms of economic development. However, to be included in the ambit of the NSP and given the size of the Programme and its the perception by some that they are being diverse geographical location, as well as the unfairly excluded. The lack of inclusion con- variable levels of stability in the country, it is stitutes a real threat to national solidarity. not surprising to find that the Programme has been more effective in some areas than in others.

8.5 Programme efficiency Table 6 provides an insight into the outputs and effectiveness of the NSP from September 2003 to February 2006. It demonstrates that despite At the outset of this evaluation the OC was problems in the programme design stage of especially keen that our methodology policy development, the NSP has proved should take into consideration issues of ACKUremarkably successful at ‘muddling cost-effectiveness which they could then highlight to donors, and in particular the World Bank. Cost-effectiveness is currently calculated by taking the total cost of deliver- Table 6: NSP outputs – ing the programme against the total amount September 2003 to February 2006 given through Block Grants. At the same time, the Ministry of Finance and the Communities selected 10,817 Ministry of the Economy measure the cost- CDCs elected 10,514 effectiveness of the NSP through comparing the total cost of individual projects against CDPs completed 10,360 the income generated from those projects. Sub-project proposals submitted 17,254 Not only is this approach too simplistic, it leads them to the conclusion that the NSP is Sub-project proposals approved 16,946 very cost-inefficient at providing rural infra- Sub-project disbursed 14,809 structure, because they fail to take into account the training and building of capacity Sub-projects completed 4,190 FINDINGS AND for local governance that have enabled the RECOMMENDATIONS infrastructure project in the first place.

130 from one another and do not encompass the scope of the activity. What seems to be Table 7: NSP capacity development lacking is a clear strategy for MRRD capacity development to ‘own’ the NSP. While it is Form of training Scope of activity evident that the MRRD has worked hard (in Informal ‘on the job’ training An estimated total of 50,000 person training line with the Cabinet’s plans as set out in days for MRRD (central, regional and the National Development Framework) to provincial), OC and FP staff. obtain outside assistance without forfeiting national ownership, much of the capacity Formal training 9,000 person days for the same target groups. associated with the NSP is either owned by CDC training Members of approximately 10,000 CDCs. the OC or has been procured in ways that have inevitably distorted public sector employment, and is therefore very difficult and expensive to maintain. Table 8: NSP projects A second factor leading to compromise over Project type Number indigenous civil service capacity development has obviously been the limited 2,933 Drinking water amount of time defined for the completion Education 548 of the Programme. In a context where there is a shortage of people with relevant 2,094 Energy related education and training, combined with an Irrigation projects 2,419 employment market inflated by international agencies and the private sector, the 1,235 Livelihood pressure to complete current work leads to Transport related projects 2,319 outsourcing rather than internal capacity development. There is therefore a tension 154 Others between imperatives for rapid completion and the need to allow people to develop skills over time by learning both on and off through’ and achieving significant rates of the job. As one OC representative puts it, social mobilization, project proposal pro- ‘[I]n the rush to disburse Block Grants cessing, and grant disbursement. something has had to give and that something has been building-up govern- However, although Table 7 provides mental capacity at the national and evidence of significant capacity develop- provincial levels’. ment of FP and OC employees as well as CDC members, our respondents identify A further concern for the long-term sustain- the absence of effective capacity develop- ability of the NSP is the tendency to invest ment as a key area of concern for Phase 2 of too heavily in infrastructural rather than the Programme, particularly when it comes livelihood enhancing projects (see Table 8). to developing the capacity of MRRD itself: This suggests the need for a change in emphasis in Phase 2 if the NSP is to deliver It wouldACKU be disastrous to hand over on its aims for economic growth. A final rec- the NSP to the MRRD at this juncture; ommendation is therefore posed here: they simply do not have the skills to deliver the Programme. They have the people at the top, but scratch below the Recommendation 59 surface and the skill levels aren’t there. The NSP should foster linkages between (NSP donor stakeholder) sub-projects. For example, the provision of electricity generators would be much more The capacity development deficit can be effective if the generators were to power traced back to the original definition of the mills, small manufacturing, or refriger- term in project documents or, in truth, the ated storage rather than focussing purely lack of such a definition. The general under- on the provision of light and the encour- standing of the term is confined to conflat- agement of a consumer life style. ing the provision of infrastructure (computers, telecommunications facilities, etc.), with technical assistance and training. Nonetheless, this inclusive approach to eval- SECTION 8: These all have an important role to play in uating NSP programme costs and benefits IN CONCLUSION capacity development but they are distinct reveals significant gains to the Afghan

131 people in relation to institution-building (limited democratization) and capacity development (mainly in skills development) and social solidarity at the national and community levels, and to a lesser degree at the provincial and district levels. Impressive benefits have also been derived economically by: creating livelihood opportunities and direct forms of economic development through improved productive capacity and the provision of work in relation to certain NSP projects; and the provision of indirect forms of economic development facilitated by increased economic activity arising from improved infrastructure and savings derived from lower costs of production. Important gains in gender equality have also been achieved in certain regions.

These benefits justify the overhead costs of the Programme, particularly in years 1 and 2 of the Programme. Moreover, overhead costs should diminish dramatically as a consequence of: a) lesson-learning from Phase 1; b) elimination of unnecessary bureaucracy through the simplification of delivery systems; and c) the gradual development of a new institutional venue for the delivery of the Programme. However, these achievements will need to be consolidated in the ways suggested above in order to ensure the long-term future of what may be deemed a development programme of outstanding potential. ACKU

FINDINGS AND RECOMMENDATIONS

132 ANNEXES

Contents

page Annex A A1. General Introduction 135 Map of Research Districts 136 A2. Methodology 137 Field Research Findings: A3. Badghis Province 143 A4. Balkh Province 163 A5. Bamyan Province 203 A6. Herat Province 217 A7. Kabul Province 223 A8. Kundoz Province 245 A9. Nangarhar Province 265 Annex 1. Laghman Province 296 A10. Paktia Province 301 ACKUA11. Paktika Province 307 A12. Takhar Province 313

Annex B B1. Terms of Reference 321

Annex C C1. Stakeholders Consulted 327

Annex D D1. References 333 ACKU

THE PROVINCIAL FIELD SURVEY REPORTS

134 A1 General Introduction

Annex A contains the individual reports survey of householders in the community prepared by the 5 research teams on the without a CDC. These full surveys are work they completed in 11 provinces and 23 reported in the findings from Badghis, districts between 20 October and 12 Balkh, Kabul, Kundoz and Nangarhar. The November. The general findings and evalua- Balkh and Nangarhar teams also carried out tive conclusions from the comparative additional visits, interviews and data collec- analysis of the provincial surveys have tion. already been reported in the Main Report. Annex A is published with the purpose of As time and opportunity allowed, the teams making the basic data from local contexts also conducted partial surveys in other available to operational staff and other inter- provinces and districts, in order to sample a ested parties, such as researchers and future wider area for comparative purposes, but evaluators. always applying the same methodology. The 5 other provincial reports, Bamyan, Herat, As described in the methodology section, Paktia, Paktika and Takhar cover these the teams worked together for a week prior partial surveys. In addition the team in to the fieldwork to validate a common set of Nangarhar made a rapid appraisal visit to interview guidelines and agree on the Laghman. general approach to the research and its key objectives.

Once in the field each team was autonomous and had to find the most practical way to implement the research strategyACKU within the particular constraints of time and access that they faced. Some teams were delayed by transport problems or had to wait for key informants to be available, while others were able to visit additional sites or collect secondary data in addition to the core research framework based on the common research questions.

Each team completed the essential core research strategy in one province: interviews with representatives of the NSP provincial and district management teams – DRRD, OC and FP; interviews and project visits to one established and one recently formed CDC; surveys of householders in each CDC; an interview with the leaders of a matched community without a CDC; a

135 Location of Research Districts

Herat Badghis Balkh Kunduz Takhar Robat Sangi (S) Ab Kamari (P) Dawlatabad (P) Khad Abad (P) Versage (S) Yaka Dokan (S) Charbolak (P) Chadara (P) Dehdadi (S) Nahrishahy (S)

Bamyan Paktika Paktia Kabul Laghman Nangarhar Shibar (P) Sarawza (S) Ahmad Estalef (P) Alingar (S) Sorkhrod (P) Sharan (S) Abad (S) Kalakan (P) Alishang (S) Chaparhar (P) Shakadara (S) Moohamdara (P) Achin (P)

(P) Primary research locations (fullACKU survey, including household survey) (S) Secondary research locations (partial surveys of varying levels but no household survey)

THE PROVINCIAL FIELD SURVEY REPORTS

136 A2 Evaluation Methodology

This evaluation methodology is divided into over 30 people to validate our approach and seven sections: the review of the literature; discuss our findings. The stakeholders held the scope of the field research; the senior positions within the NSP OC Team, approach to gaining access in Afghanistan; the Ministry of Rural Rehabilitation and the data gathering techniques; the selection Development, FPs and the World Bank. of the samples and their representativeness; Ministers/senior ministerial representatives the main practical constraints to the field from the Ministries of Finance, Agriculture, research; and the analyses of the field data. Education, Water and Energy and Women’s Affairs were also consulted, in addition to senior representatives from NABDP, AREU and UNDP. Review of the literature The donors that were consulted included: This evaluation started with reviews of the DfID, JICA, USAID, EU and the Embassies of academic literature and the grey literature Norway, Germany and Canada. (field reports, policy documents and other reliable internet-based data) on the wider The provinces policy roots of the NSP; that is, the World Between October and November 2005, 5 Bank’s Social Funds Development Policy. teams of 3 researchers conducted the field research in 11 provinces (Badghis, Balkh, This was followed by a more focussed Bamyan, Herat, Kabul, Kundoz, Laghman, review of the grey literature on the NSP, Nangarhar, Paktia, Paktika, and Takhar). Two which consisted of policy documents and of the Research Assessment Teams (RATs) statistical data (some internal and confiden- were led by Afghan team leaders, and the tial) fromACKU the World Bank, MRRD, NSP other 3 were led by British Research Fellows Oversight Consultants team, in addition to from the PRDU. Therefore, each team had independent reports from NGOs, think at least two Afghan researchers. tanks and research institutes with specialized expertise in Afghanistan. Further Across the 9 provinces visited, 18 CDCs and secondary data pertaining to the coverage the leaders of 6 matched communities not and performance of the NSP was collected participating in the NSP were interviewed. during and after the field research. Household surveys were conducted in all 1 A detailed list of the but 4 of these communities, in addition to stakeholders interviewed, one community in Paktia visited by the workshop attendees and PRDU’s engineering specialist (total 21). stakeholders from the Scope of the field research 1 Provincial research can The mode of carrying out the surveys be found in Annex C. Kabul depended on local cultural factors, which Between October 2005 and February 2006 particularly determined where women over 50 interviews were conducted with researchers could work or researchers various national level stakeholders, as well could interview women. In Herat, as two participatory workshops attended by Nangarhar and Paktia the all-male research

137 teams could only interview men. Never- Approach to gaining access theless, the extensive inclusion of Afghan women’s voices represents one of the key All interviews were arranged through the achievements of this evaluation. Using a proper and official channels, and with mixed research team in Balkh meant it was informed consent.2 Before each interview, possible to interview men and women in there were tailored introductions to inform the same households. The other mixed the interviewee of the nature of the research team working in Bamyan and questions and the purpose of the evalua- Kabul interviewed men and women repre- tion. Confidentiality and anonymity were senting different households. Furthermore, ensured and the researcher was proactive in in Kundoz and Badghis, the all-male teams being sensitive to the respondents’ needs. were sometimes able to interview widow heads of households. First, a focussing approach was employed, with interviews conducted with respon- As a result, 73 men and 13 women were dents from the elite level of the NSP in interviewed individually within the CDC Kabul, and moved down through two communities in 8 of the provinces, in further levels before finishing with the addition to men and women in 30 house- selection of households within the holds within CDC communities in Balkh. provinces (see Figure 1 below). Furthermore, 33 men and 7 women were interviewed individually in communities without a CDC, in addition to men and women in 6 households in Balkh. In all, rep- Figure 1: resentatives of 162 households were Focussing approach to gaining access surveyed. Kabul Additional visits were made to 4 CDCs in Minister for the Ministry of Rural Kabul, 8 in Laghman and 8 in Nangarhar. Rehabilitation and Development (MRRD); However, full household surveys were not MRRD national staff; FP national staff; carried out in all provinces, due to con- OC Coordinator; NSP/OC Team Leader; straints of time and access (see below). and Chief NSP Coordinator The DRRD NSP management teams were interviewed in every province visited except Laghman (10 provinces), and the OCs in all Provinces except Paktia and Laghman (9 provinces). Provincial Governor; Provincial and Interviews were also conducted with district-level RRD staff; OC and team; provincial governors or their deputies FP management and district staff where possible.

A total of 13 FP provincial teams were interviewed or visited. Full interviews were Communities conducted with the management teams of CDC(s) and traditional and social the FPs facilitating the CDCs visited in 8 ACKUshura groups/institutions where relevant provinces: AKDN in Bamyan; BRAC in 2 In order to gain and maintain Badghis, Nangarhar and Paktika; CHA and access within the provinces, each UN-HABITAT in Balkh; Concern in Takhar; RAT met with the Provincial GRSP in Kundoz; and SDF in Kabul. FPs Governor or deputy and/or the Households working in neighbouring areas were more Provincial Director of the MRRD. Surveys with a pre-selection of briefly interviewed or visited: UN-HABITAT At this meeting, an official letter 10 households representative in Bamyan; Madeira and DACAAR in of introduction from the Minister of the CDC community or village Laghman; and ACTED in Kundoz. of the MRRD was presented, in addition to a brief overview As detailed in their respective provincial of the evaluation: the main aims reports, the research teams based in Balkh or purpose of the research, and Nangarhar were able to conduct addi- Access to the communities was gained ulti- the type of interviewees tional background and comparative mately through their leaders, which granted and the districts targeted. research. the research credibility and respect. However, in order to overcome diplomatic biases it was essential to insist politely on THE PROVINCIAL exploring other areas and talking to other FIELD SURVEY REPORTS

138 people. For the latter, interviews with sentatives and groups of staff. Second, a households living beyond the obvious areas survey was conducted with households par- of community activity and marginalized sub- ticipating and not participating in the NSP. groups provided a more complete under- Structured observations were important, standing of each community. This also especially when visiting the communities demonstrated awareness of active, present and evaluating the projects. The collection and living biases by including and showing of quantitative data was also crucial, espe- sensitivity to issues involving the sick or cially in evaluating NSP coverage and per- dead of the communities. To control male formance, and it was gained through the bias, it was important to try and establish grey literature collected before, during and interviewees and responses that were after the field research. In addition, the gender-equal by seeking a representation of PRDU collected primary quantitative data female respondents and raising gender through the profiles of the communities issues as part of the research aims.3 To and households surveyed. overcome seasonal bias, respondents were asked to consider the long-term (past and The questions for the semi-structured inter- future) when answering relevant questions. views and the household surveys stemmed Bias overall was acknowledged, but con- from the PRDU’s initial conceptualization of trolled by discussing and sharing knowledge this mid-term evaluation and the literatures at several intervals before and during the reviews. The sets of questions were then collection of data. piloted in Kabul during exploratory research in August 2005, and refined further Although there were notable achievements during the intensive training workshop with in gaining and maintaining access, it is the Afghan researchers in October 2005. In prudent to assume the research inevitably particular, this workshop refined the engi- had positive and negative impacts. Barakat neering questions based on the insight et al and Goodhand emphasize the impos- gained from the engineering expert’s prior sibility of a researcher remaining neutral, evaluation of four completed projects in especially during conflict. Similarly, and around Kabul. Jacobsen and Landau raise the issue of “reactivity”, where a researcher’s presence Using the example of the CDC interviews, potentially influences the behaviour and the questions principally aimed to assess responses of informants (Jacobsen and the ability of the CDCs to assume the two Landau, 2003: 102). This includes the possi- key roles assigned to them by the NSP: rep- bility that the research may have unwittingly resentative governance and community supported vested interests; for example, development. In practical terms, this Pratt and Lozios remind that research can involved assessing their capacity to function empower, which can make others hostile independently as a democratic leadership of (Pratt and Lozios, 1992: 17–19). Where their communities and their ability to select, possible, this was alleviated and controlled plan and manage development projects. by making the aims of the research clear Accordingly, group interviews with the and by using the guidance of key respon- CDCs and observation of their work dents and gatekeepers. While reactivity is focussed on a number of key indicators: inevitable,ACKU it is also important to give legitimacy and acceptance; participation, respondents some credit in their ability to transparency and communication with the listen, understand, form realistic expecta- whole community; project management tions and to differentiate among types of skills; record keeping; relations with gov- outsiders. Furthermore, there may be ernment and outside bodies; and their rela- potential benefits for interviewees, tionship with the FP. “[k]nowing they are contributing to a worthwhile endeavour can be gratifying; it As another example, the household survey may increase confidence.” (Arksey and was the principal tool for assessing the Knight, 1999: 127). impact of the NSP in respect of its goal and 3 As noted above, most of the objectives. It was designed to provide RATs were able to interview evidence of progress in developing women householders and community governance and project man- members of CDCs. Data gathering techniques agement capacity as a means of empowering communities to improve their lives. To This evaluation was grounded in in-depth this end the survey sought responses from a ANNEX A2: qualitative data, consisting of mainly semi- sample of householders on a number of key METHODOLOGY structured interviews with individual repre- issues: their experiences in the war and the

139 immediate post-war period including (Barakat et al, 2002: 993). Pratt and Lozios economic conditions and forms of gover- draw attention to the danger of specialists nance (the baseline from which the attaching too much causal weight or Programme had to work); how they had interest because of their own ‘specialism’. experienced the process of setting up the This bias was balanced by asking household CDC and the choice of projects; the extent heads to prioritise and explain the major of their participation in governance and problems facing their community, which project implementation today; their percep- itself generated insightful observations tions of the wider national governance, (Pratt and Lozios, 1992: 2 and 6).5 including recovery and development plans; and their outlook on the future.

All interview and household questions Selection of samples followed a strategic structure of clusters and representativeness linked to specific themes, which was important for several reasons. The order There were 5 main sets of samples for reflected the degree of potential sensitivity, analysis: the NSP actors (national, provincial from an initial request for straightforward and district levels); the provinces; the information to socio-economic data as the districts; the communities and their leaders; last cluster. The strategic structuring and the households. strategy was used to develop trust before more personal questions were asked, and First, the field research aimed to reach a allowed the researcher to proceed through cross-section of key respondents who were the questions in a logical manner which representative of the range of actors within made sense to the respondents (Arksey and the NSP; that is, senior representatives from Knight, 1999: 39). The questions that, in the relevant government ministries and subject matter, were relevant to two departments, and the NSP Oversight question clusters, were placed at the end of Consultants team in Kabul. Based on the a section to provide a logical lead question selection of the provinces (see below), to the next one. Reflecting the overall senior representatives of the OC and DRRD strategy, the more basic and less sensitive were then interviewed at the provincial 4 The researchers/interpreters questions within each cluster were placed level, in addition to representatives of the also received guidelines for before questions of a sensitive or opinion/ latter at the district level. Similarly, repre- during, and closing, the interview value-based composition. sentatives of a wide range of FPs were inter- (Arksey & Knight, 1999: 102). viewed at each of the three main levels, These guidelines were presented To initiate trust and rapport prior to each which consisted of indigenous and interna- and discussed during the 3-day interview and survey, a uniform method was tional NGOs, and a UN agency (see above). training workshop in Kabul in employed to briefly and informally Overall, the final selection of the NSP actors October 2005. The household introduce the reasons for the research and stemmed from the consultation and trian- surveys lasted for 20 minutes how information would be used, while gulation of two fundamental sources of (approx.) with an average of stressing and demonstrating confident- information to ensure representativeness: 45 to 60 minutes for the iality.4 Each interview and survey was policy documents (as listed above); and semi-structured interviews. concluded by asking for further comments data gathered during the interviews in and questions, and our gratitude was ACKUKabul.6 Care was also taken to interview 5 Validity depended on the skill repeated. On some occasions, interviewees actors who had both short- and long-term of the interviewer, the time asked to be informed of our findings and engagements. The continuity of intervie- available and the rapport that this was facilitated where possible. In partic- wees and the subsequent analysis of com- allowed respondents to be ular, the shura or CDC was debriefed in a monalities and shifts in perception ensured as informative as possible general way before exiting the community. the respondents’ credibility. (Arksey and Knight, 1999: 16).

It was also important to consider the possi- Second, the selection of the provinces was 6 For example, the FPs bility of bias in the interviews and surveys, based fundamentally on addressing those were selected from the since respondents may have been with the critical mass of projects within the comprehensive list of FPs motivated by the perceived intentions of NSP, followed by security considerations. within the NSP Oversight the researchers, mistrusted the aims and While we would have preferred to visit Consultants ‘Implementation credibility of the process or “used it for their every province, this was prevented by Progress Report’ from own purpose”, thereby resulting in “false or security. 30 September 2005. incomplete” information (Barakat et al, 2002: 993-994). Alternatively, the time taken Third, the selection of the districts within by semi-structured interviews can also each province was mainly decided by the THE PROVINCIAL reveal inconsistencies and instil more trust selection of the communities (see below). FIELD SURVEY REPORTS

140 Nevertheless, the appropriateness (repre- quota of 10 households was drawn from sentativeness and security constraints) of each community profile. In general, 5 to 7 the districts was confirmed by consulting typical households were interviewed with 5 three other crucial sources: the updated to 3 households representing vulnerable and comprehensive list of districts provided subgroups, depending on the profile of by the National OC in Kabul; each FP in each community. As above, since there was Kabul and the FP at the provincial level; and no comprehensive baseline data for the NSP, checking with the general background the sample of householders in matched knowledge of our Afghan researchers who neighbouring communities not participat- had expertise in the NSP. ing in the NSP provided another means of distinguishing the impact of the NSP from Fourth, within each province the selection general trends towards recovery. of the communities was based on three cluster types: those with a well established Last, it is important to note two deliberate CDC(s), project approved and at the stage exceptions, which widened the scope of the of project implementation; one with a investigation. Some CDCs were inter- recently established CDC(s) and at the stage viewed, but without household surveys of drawing up a project plan; and one non- completed in their communities. This was participating community. The first two to compare established and newly formed clusters were receiving or expected to CDCs and with non-CDC communities. As receive the physical and non-tangible the second exception, some CDCs were benefits of the NSP. The third, non-partici- visited and interviewed with specific focus pating community shared a similar profile to on the engineering of their projects. the other two clusters of communities, which permitted a comparative analysis. The latter small sample was necessary because there was no baseline data on the Practical constraints to field research nature of governance and development in the rural communities prior to joining the As detailed above, it was essential to identify NSP. and manage the more academic challenges to the field research. However, there were In selecting the three clusters, relevant also two main practical constraints: the Eid information and profiles of the communi- holiday period, and security restrictions as ties were attained and then verified at three advised by the UN guidelines. Although the levels: hard data from the FP in Kabul; back- timeframe of the field research was signifi- ground knowledge and hard data from FP cantly reduced by these two factors, the staff at the provincial and district levels; and teams managed to research more communi- from the CDC(s). Each profile was based on ties, CDCs and FPs than originally expected. the size of households, the proportion of This stemmed from effective time manage- rich, middle and poor incomes, sources of ment, accurate planning and the coopera- livelihoods, ethnicity, the number of vulner- tion of the interviewees. In particular, the able sub-groups or dependent/semi- cooperation of all the FPs proved invaluable. dependent adults (elderly and/or sick, Furthermore, the RAT leaders used the Eid disabled,ACKU widows and widowers, FHH with period as a timely mid-way interval to review dependent children, returnees and IDPs), and consolidate the data gathered, which and the age of adulthood. The presence and made the final week of field research more type of social groups and institutions were focussed. also explored.

Accordingly, a complete list was drawn up for all communities within the first two Analyses of field data clusters, and the average communities were randomly selected after rating each The field data was analysed progressively community in terms of their NSP perform- during three main stages. Using the same ance. Where possible, the three communi- evaluative headings or themes, the findings ties were located in the same or at least from the national-level interviews in Kabul similar districts, which allowed useful com- were collated parallel to the completion of parisons and provided insight into the the field reports by the RAT leaders. These varying progress of CDCs. two strands of enquiry formed the prelimi- ANNEX A2: nary analysis and this initial stage closed METHODOLOGY As the last sample set, a representative with the submission of the Inception and

141 First Draft Report of the NSP mid-term Evaluation (PRDU, 2005).

The second stage of analysis was composed of two main parts. This involved the research team tightening the preliminary analysis in light of requested feedback on the Inception Report from the MRRD and the OC Oversight Consultant team. The second part consisted of comparative analyses of the provincial field data for the DRRDs, OCs, FPs, CDCs, NSP households, and the non-participating community leaders and households, using the same evaluative themes. This second stage closed by gaining important feedback on the updated findings through a workshop presentation in Kabul in February 2006, with senior representatives of the key NSP stakeholders (MRRD, FPs, OC team, international and indigenous NGOs, and donors).

The last stage focussed on drawing together the final conclusions and recommendations, as presented within this final report.

Finally, throughout the three stages of analyses, the field data was cross-checked within and, where possible, against the grey literature collected on the NSP. This was to ensure consistency in the opinions of each interviewee and to identify inconsistencies. For example, the household surveys and the CDC interviews focussed on similar issues but came from two different perspectives, and thus permitted insightful comparisons. ACKU

THE PROVINCIAL FIELD SURVEY REPORTS

142 A3 Badghis Province Provincial Field Research Findings

1. Timing and scope of the research the Directorate in Qalae-now. The Director responded to general questions and then The research team1 worked with the NSP left his staff to continue the interview. programme in Badghis between 25–31 October 2005. They interviewed the management teams of the DRRD, the OC and 2.1 Badghis DRRD one of the FPs, BRAC in Qala-e-now. They The Department is supposed to have a staff then visited three communities in Ab of 40 but currently has 31. They are Kamari district: two participating in NSP and currently running a number of programmes one matched community not involved with directed at community development: the NSP. WATSAN; Hygiene and health awareness programmes; NEPRA (for road construction Persons interviewed in central Badghis); area-based develop- The Provincial Director of DRRD ment projects; micro-finance; vulnerability The DRRD Manager of NSP and a assessment; emergency preparedness and member of the monitoring team response etc. The Provincial Head of OC The Provincial Manager of BRAC The District Managers of BRAC 2.2 Experience of community Ab Kamari and BRAC Jawand development with the NSP The BRAC engineering team (Central The Director said the NSP department had Office Project Engineer, Provincial been established three years ago and and District Engineers (seven) and started work in Qades District. Since then a monitoring officer the NSP manager and staff spend most of ChairmanACKU and members of the their time in the field supervising the Mobarak Shah CDC projects. The OC was established a year ago Chairman and members of the and the DRRD have been cooperating with Dai Zangi CDC them since then. Nine householders (8 men and one woman) in Mobarak Shah Eight householders (7 men and 2.3 Training and capacity of the DRRD one woman) in Dai Zangi The two members of the NSP team said they Community leaders of Charsangi had received training on the basics of NSP Nine householders (7 men and and how to use the Operational Manual. two women) in Charsangi They had also been trained in community 1 Waheed Omer (Team Leader) mobilization. However, all this training had with Malaiz Doud and been on-site, not in workshops or formal Roydar Qutabuddin. training. They found the community mobi- 2. The DRRD at the lization training most useful. provincial and district level They felt that they had the professional The Director, NSP Manager and a member capacity not only to carry out the current of the monitoring team were interviewed at programmes but to run more programmes,

143 except that they are constrained by lack of 3. The provincial NSP Oversight resources (vehicles and mobile phones, for Consultant (OC) example.) The Oversight Consultant was interviewed 2.3.1 Constraints due to the NSP on his own. structure/procedures/workload The number of staff processing the large number of projects had proved inadequate 3.1 General comments on the and the Director had allocated two extra strengths and weaknesses of the NSP staff to it. As to other aspects of the NSP The strengths of NSP are that it has given management, the Manager said his 25 years’ authority to people to decide their priorities experience working in the province meant for themselves. It has generated a sense of that he was more than capable of handling it responsibility and inspired enthusiasm to on his own. However, he now feels carry out large construction projects, in confused about his status. Since the OC some cases contributing, not just the came he is required to work from the OC’s required 10 per cent of the cost, but as office, and has been told he is paid by both much as 50 per cent. People now refer to DRRD and the OC. He can’t see how he can NSP frequently after defining their needs be an employee of both and would like clar- (comments by some householders inter- ification as to which is his boss. viewed support these claims).

2.3.2 Coordination with other ministries Another achievement, often in the face of They attempt to keep the directorates of opposition from elders and former com- agriculture and health informed of what manders, has been to establish the legiti- they are doing by taking them to visit the macy of democratically elected councils projects. However, there is little being done (also supported by the experience of the in these sectors with which to coordinate. two CDC visited; see discussion, 7.1 below).

2.3.3 Community relations The OC was reluctant at first to discuss They thought they had good working weaknesses, saying he had told the Minister relations with the CDC because they always about them. However, he described some of discussed things with them and had a good the constraints. understanding. They had also received and discussed complaints from the people. Any The first of these, in a remote and under- they were unable to handle were passed on resourced province like Badghis, is the diffi- to Kabul. culty in publicising the programme to the public without local newspapers, radio or other means. It also affects the bidding 2.4 The role and impact of NSP/CDC process once projects are approved. They did not think there was much prospect of the CDC surviving for very long The next problem is the transfer of funds without the funding support from the through DAB. The Badghis branch is run by MRRD because in the final analysis politics is two people (one is also a Mullah) who do determined by the economy. However, the ACKUnot have the capacity to manage the volume NSP has brought people close to govern- of work. As a result the CDC wait a very long ment, which is a strong sign of national sol- time for their money. idarity. Without it ‘people will get involved in harmful things in the villages’. The third problem, already mentioned, is the opposition of commanders and elites, who have tried to block the process in order to protect their vested interests. In one case a Mullah preached against NSP as un- Islamic. Rounds of discussions were necessary to convince him and the people that it is a government initiative to support them, not run by the Americans.

3.2 The role of the OC The OC described his role as taken up with THE PROVINCIAL disseminating information about the FIELD SURVEY REPORTS

144 programme. In particular it was necessary to 3.3 The supervisory role of the OC explain that it is a government programme, Despite his low opinion of the FP, he not the initiative of the FPs, who are only confirmed that they explained the eligibility partners (two FP are operating in the criteria effectively to the communities Province: BRAC and DACAAR). The FP had before they drew up their projects. As a initially failed to make this clear. result most proposals comply with the criteria. Another task is processing and approving proposals, managing fund transfers and When asked how the NSP management supervising the FPs. The OC engineer, for ensures delivery of funds he described the example, makes frequent site visits. He did difficulties created by various other actors in not mention any involvement with or the process: the OC headquarters fails to capacity-building of the DRRD as part of his review proposals and transfer funds on essential role at this stage. In fact he time; the DAB adds further delay; the FPs described his role in terms of direct imple- are ‘sometimes lazy in sending us their mentation: ‘We observe the activities of the requests for second instalments’. FP and CDC and give them direct feed back. We are the sole authority to approve and Representations to HQ had mitigated the disapprove projects. We are involved in all problems over time and a new information the process.’ system had been introduced which will enable electronic tracking of proposals and 3.2.1 The capacity of the DRRD (and BRAC) Block Grant disbursement. Talks with DAB When asked directly about the capacity of resulted in them being asked to send all the NSP staff in the DRRD, he said ‘The three disbursements together, so that the Director is a good guy, but he does not have money is available as needed. professional staff.’ His view of the NSP Manager was that his lack of education (a He said the average waiting time for com- grade six graduate only) meant he cannot munities to receive project funds is two handle NSP work. He grudgingly acknowl- months, but it can be as short as 28 days; in edged his experience in the communities some cases it has taken over a year. that made him ‘good for monitoring’.

When asked about specific capacity-building measures, he said that since the govern- 4. The facilitating partner (BRAC) ment has no capacity they have to do the work directly themselves. They do take the Members of the provincial and district man- Director with them on most of their agement teams were interviewed together missions and brief the DRRD on their activi- in the BRAC office in Qala-e-now. ties weekly and they ‘hope all this will help the DRRD develop its capacity’. 4.1 Programme management He did think they were improving but said it would be impossible to hand over to them 4.1.1 General Information in the proposedACKU timeframe. In fact the only on BRAC’s NSP operations way to hand over to DRRD would be for The management team provided the them to hire qualified staff and pay them following information about their NSP proper salaries. (Note above that the DRRD programme. has not been able to appoint a full complement of staff.) Tw o districts of Badghis, Ab Kamari and Jawand, are targeted through NSP. Seventy- He added that BRAC had also hired very two villages of each district have been unqualified staff despite the money they covered by the programme – 144 villages in have. (The CDC in Dai Zangi also noted this both districts. An additional 54 villages have while saying their contribution was on the been surveyed in Ab Kamari District, taking whole good.) The OC suggested that the the total to 198. money saved went back to Bangladesh. (Another explanation might be difficulty Two hundred and thirty-five sub-projects recruiting to this remote province, but the have been approved so far. One hundred FP said they had no recruitment problems.) and twenty-seven projects are ongoing. A ANNEX A3: total of US $1,536,000 has been received so BADGHIS PROVINCE far. The CDCs have received US $1,380,000 altogether as of now.

145 Currently, BRAC/NSP has 68 field staff, 8 of but they were lost in NSP HQ and the OC whom are female. The female staff are had to submit copies of them again. always accompanied by male escorts from the family. For some specific tasks, some 4.1.2 The role of FP women are hired on short-term contracts. The FP team described their role, starting The FP is trying to get more women on with their liaison with local government, board. There is a shortage of women both OC, DRRD, ‘commanders and influential interested and educated enough to be able people at community level’ and aid to work. One hundred and eleven BRAC agencies. They then spoke of staff recruit- staff and 998 CDC members have benefited ment and training, planning and implemen- from a number of training activities. BRAC tation of projects as ‘our responsibility’ but has 68 field staff for NSP. saying that they ensure the implementation of projects through their staff and commu- Delays and impediments to implementation nities. The programme has suffered some setbacks which have resulted in delaying the They then emphasized that they are only programme. Since May 2004, BRAC had to facilitators and provide technical assistance relocate its staff four times to Herat and and that they always emphasize that it is a Kabul from Jawand, and there was no government programme and ‘we are only proper work for four months because of facilitating community organization, security constraints. formation of CDCs, elections and prioritizing their needs.’ The province saw unprecedented snowfall last winter which hadn’t been witnessed in They were sure communities understood over a decade. Consequently there was this role because they explained it repeat- virtually no work from December to March. edly to them in both CDC and monthly Jawand was, in particular, troubling the FP community meetings. (The household for a variety of reasons; the villages are very survey confirmed that the villagers did scattered. Most of the villages are on high understand that the programme was mountains while others are located in low initiated by government and most did not river beds, which can be up to 1,800 m mention BRAC.) lower than main communication roads. To reach most of these villages, it can easily 4.1.3 Working relations with the DRRD/OC take 2–3 days. Animals, donkeys mostly, are They described their working relations with the main means of transport. DRRD as good. The two FP (BRAC and DACAAR) meet weekly with the DRRD and Jawand is also 150 km from Qala-e-Naw, the they make joint project visits. There are also provincial capital. The road is harsh, espe- regular exchanges of visits and information cially the Darzak Pass, which has a 90-degree so that they are informed of problems slope. The other way into the district is arising and can be called on to help when along a canal which is, however, full of water necessary. They share the same community at all times during the winter. development aims.

Another reason for delay in the programme ACKUThey also described their relations with the has been the migrations. Many nomads and OC as ‘good from the very beginning.’ farmers shift to mountain slopes from June They particularly mentioned technical assis- to September since the slopes are green and tance and help with staff training and fit for grazing of animals. capacity-building and that they work closely with them on project planning and supervi- The habit of wanting to change projects is sion. another problem. The projects are finalized but not approved since mostly changes are Their view is that FP, DRRD and OC work as required. One CDC, even after getting the a team and discuss things frankly which money, wanted to change the project. results in improvements. If here are differences of opinion, the problems are always Some projects were approved later than ‘interrelated’ so they work together to solve they should have been. Around 40–45 them. This suggests a commitment to team projects were delayed for almost eight work but relations that are sometimes months until three months ago. One of the difficult. projects was delayed for one year. Some THE PROVINCIAL projects were sent to NSP HQ for approval FIELD SURVEY REPORTS

146 4.1.4 Capacity of DRRD these communities considered themselves They recognized that the DRRD lacks as all related, this seems unsatisfactory and capacity but believed they were in ‘a contin- there were indications of resentment in the uous process of capacity-building’ including household responses. It was also unclear if recruitment from both inside and outside all would benefit equally from the projects the province so that their capacity ‘increases visited. day by day’. At present they do not have the capacity ‘to manage huge projects’, but they Participation of women have great strength in solving problems in The FP did show a commitment to the community. promoting women’s involvement, but this is still culturally difficult (see discussion of 4.1.5 The impact of NSP on relations recruitment above). There are now between communities and government women’s CDC in Jawand, but apparently not They said there is ‘100 per cent contact’ in Ab Kamari. Women’s participation between people and government through seemed minimal in Mobarak Shah and their representation by the CDC. Because limited in Dai Zangi. people feel they have been given the authority to take decisions this has 4.1.8 The FP’s capability in relation weakened the local warlords. People go to to the programme demands the CDC to resolve problems. One of the BRAC was already running a health engineers said they can now work without programme in Badghis when it took on the fear in Jawand because of this. He added: NSP and it would aim to continue working in the province if NSP does not continue. ‘The NSP has formed the very first and fundamental pillar of government It was necessary to recruit 64 extra staff for in far and remote areas NSP but they did not mention any particular where no government existed.’ difficulty with recruitment of qualified staff or with training (but see comments by the 4.1.6 Training and capacity-building OC and one CDC). They said that they are in the communities able to meet the current demand of the The first training in the communities is ori- programme in terms of preparing and entation on NSP. They also provide training following through project proposals necessary for project management such as because they have the budget and enough accounting and procurement and use of the staff to manage it. For example, they had no NSP Operational Manual (presumably by problems in explaining and applying the eli- CDC members?). Specific skills training for gibility criteria. particular projects is also given. For example, widows and the disabled were given training in livestock rearing. 4.2 Management at district and project level 4.1.7 Participation There was initial resistance to participation Staff capacity-building and training in the programme, which they ascribed to The field staff were not interviewed but the people’sACKU ‘low level of education’ district management team said that they (awareness?). Different groups found it had had a workshop on the basic NSP difficult to participate in the CDC because of programme, technical training on long-standing enmities and conflicts, until proposals, training in monitoring and evalu- proportional representation was negotiation and in accounting and procurement ated. Influential individuals whose power procedures. They thought all were useful. was challenged by elected CDC also tried to Different members of staff found different keep these divisions going. In Jawand parts of the training of particular use to religious leaders also resisted the them. programme as ‘infidel’ and anti-Islam. They were hostile to both government and NGOs Project relevance, sustainability but came to realize that it was to their and efficiency benefit to accept it. NOTE: questions 17–23 missing from the transcript Inclusiveness was not discussed/not recorded (see below) but in the large Relevance ANNEX A3: community of Mobarak Shah, with over 300 The FP’s views on this are not known (see BADGHIS PROVINCE families, 75 were left out of the CDC. Since above). The CDC and household interviews

147 give an indication of relevance in their par- been trained both in the accounting and ticular cases. Access to clean drinking water procurement procedures of the NSP and to was a high priority in Mobarak Shah, but the be aware of how they can ensure that they project will only supply 30 per cent of the buy the right quality. village’s need. Projects to address other problems may well have gone beyond the (However, both the CDC in Dai Zangi and budget of the NSP. In Dai Zangi, the CDC the OC thought the BRAC engineers lacked thought the electricity project would have qualification, though the above accounts advantages for children to study (they are suggests they are tackling this weakness.) getting a school built under another MRRD programme) and enable carpet-weavers Efficiency and effectiveness (mainly women) to increase production. The operational staff, including the However the main community priority engineers, described the normal timeframe seemed to be a clinic. None of the house- for project completion as: one month for holders interviewed mentioned looking identification; project start after one and a forward to having electric light, though half months; completion (of large projects) most earned income from carpet-weaving. in three months.

As in communities elsewhere, they appear However they also said that projects could to have chosen what they could afford and be delayed and take as much as 6 months. easily implement with the NSP budget. Delays were attributed to delays in Block Grant transfers and also in the initial Sustainability approval process. They had noted an The FP’s views on maintenance and use of improvement in the month prior to the facilities and economic benefit etc. are not interview and thought the system is now known (see above). CDC comments suggest working better. (Dai Zangi CDC noted that it was not being adequately addressed in the FP itself completed its work on these cases. schedule.)

The CDC in Mobarak Shah was going to It was clear from the responses that the FP appoint one volunteer to maintain the team had no knowledge of appropriate reservoirs and had no budget plan for main- safety measures and therefore did not tenance. In Dai Zangi, the CDC said they include these in their training for project had been advised at an early stage by the FP implementation by the communities. to consider this and had made a budget plan to hire someone to look after the machine The effectiveness of the projects was not on a full-time basis. The budget would also discussed and it was too soon to assess this cover the cost of fuel. They did not say how at the two communities visited. this budget was to be sustained in the long- term, especially as householders find it District profile of Ab Kamari difficult to afford fuel for lanterns at present. (Provided by the BRAC management team)

As regards the quality of infrastructure, The population of Ab Kamari are mostly project design and construction, the ACKUTajiks. There are some 30–35 khels (sub- engineers and operational staff described a tribes) of nomads. People in this district are number of ways in which this was assured: poor. They are dependent on rain-fed land and livestock as the main source of their They are first of all guided by the NSP livelihoods. The district has also benefited technical manual. If this does not cover any from very limited emergency interventions problem they consult the OC or use other but no development projects have been guidelines such as the International Code of implemented in the district. Conduct, American Concrete Institute, Afghanistan Construction Norms. Those with some livestock and some land with adequate water, warlords and ex-com- The design is then cross-checked amongst manders are well-off. Their houses are the staff and sometimes checked by the visible in the villages as noticeably better engineering specialist from HQ, who makes than the majority. Normally, one will find a frequent visits (present in this interview). car in front of their houses too.

They also regularly check the quality of the Poor people have neither land nor livestock THE PROVINCIAL materials procured by the CDC, who have and it is hard to find employment in the FIELD SURVEY REPORTS

148 district. There is also up to 5 per cent of technical competence. The DRRD is also widows in the district. No exact figure of generally short-staffed though it has given disabled people can be indicated as yet, but priority to NSP staffing. In this situation the there are disabled people in all villages of OC saw his role as taking full operational the district. control of the programme while giving importance to building the capacity of the The communities are mostly led by religious FP through training and direct supervision, clerics, the Mullahs. Until very recently, and to empowering and building the commanders of different warring factions capacity of the CDC. However, he seemed and warlords functioned as leaders of com- to marginalize or substitute, rather than munities though. support the DRRD team though he kept them informed. In particular this approach Some of the community representatives to did not build on those community relations the NGOs for emergency programmes have skills they undoubtedly possess. functioned as linkages between the communities and aid agencies which have been The arrangement described above repre- widely accused of widespread corruption. sents a failure of partnership and team Many of those people are now enjoying an building, but was probably induced by the economically prosperous life. perception that it was essential to ensure the implementation of the programme to the expected targets within the time frame. The capacity-building of the DRRD, in the 5. General comments on the difficult circumstances of the province with management of NSP in Badghis a weak facilitating partner, was a task too many for the OC.

5.1 Strengths/successful Threats to further implementation implementation However, the result of the OC approach is Given the difficulties of operating in a that the OC team has made itself indispen- remote and underdeveloped province, con- sable to the continuation of the NSP in the tinuing security problems, such as Badghis, province and the prospect of DRRD the NSP achievements so far, though falling assuming even an equal role, despite their short of the results in other provinces have growing capacity, is remote. to be considered a success. In particular, negotiating a gradual transition to CDC governance in traditional kinship-based communities represents successful adaptation 6. The CDCs of the NSP to local conditions. It appears from the FP’s and community members’ comments that the experience of the DRRD 6.1 Mobarak Shah staff contributed to these successful comm- – Ab Kamari District unity relations. The favourable attitude to The Research team interviewed the NSP of the leaders of the so far non-partici- Chairman of the CDC at his home with pating ACKUcommunity also seems to have some of the other members of the CDC (all resulted from contact with DRRD. It should men). be noted that the DRRD and FP worked together for two years before the appoint- 6.1.1 Community profile ment of the OC, although the present head The village is situated at 40 km from the was at the time also working for an NGO in centre of province. The road is dusty with the province. many passes. It is narrow at places, only accommodating one vehicle at a time. The It was evident from the FP’s approach and road also passes through a river at some the two districts they cover that the NSP in places. Badghis is also making significant, though slow progress in involving women in The village is dry, remote and threatened by community governance, by the same gradu- possible demolition by the floodwater of a alist approach. small river that flows from the middle of the village.

ANNEX A3: 5.2 Limitations There isn’t a single vehicle available in the BADGHIS PROVINCE However, as noted by the OC, both the FP entire village of 375 families. To transport and the DRRD staff lacked professional and seriously sick people, the villagers have to

149 go to Dai Zangi Village, which is at a 6.1.4 The Project distance of 30 km, to find a vehicle. The community was implementing a project to build reservoirs of clean drinking water. The inhabitants of the villages are mainly Ta jiks. People are dependent on farming The members said the process for selecting and livestock for livelihood. Those with the project started with the CDC identifying 150–200 animals are considered rich, the problems; they then ‘consulted whereas poor people have only one animal. everyone’ and set the priorities. (This description and the fact that no house- The nearest source of drinking water is four holder described being actively involved in hours away from the village, as river and the decision-making suggests that it was not underground water is salty and not suitable actively participatory.) for human and animal use. They said there had been no differences of There are around 35 widows in the village. opinion so far (the need for drinking water is clearly acute and affects everyone) but Seventy-five families have been left out of said if differences do arise they would the NSP. decide ‘on a majority-minority basis’.

6.1.2 Legitimacy and acceptance of the CDC Once the decision was taken the CDC When asked about the leadership of the started implementation with the guidance council, the CDC members unhesitatingly of the FP. They did not respond when asked said it was the tribal council made up of 30 if there had been any disagreements over elders and clerics. When asked about the the implementation. relationship between the two councils, they said there was collaboration and consulta- As regards participation they claimed that tion between the tribal council and the those in executive positions in the CDC CDC. However, they thought that there was spent 80 per cent of their time on the more trust in the CDC than the tribal project and the other members 50 per cent. council and (probably for that reason) they One member of the CDC monitored the were sometimes involved in resolving implementation on a daily basis. (That is the community conflicts. This suggests a work being done by the other villagers as growing legitimacy despite the fact that they paid labour, but they did not mention this.) and the householders interviewed still recognized the leadership of the traditional They said that a volunteer would be respon- council. sible for the maintenance of the reservoirs when complete, but had obviously not 6.1.3 Functioning of the CDC thought out exactly what might be involved in relation to the whole community or any possible costs. The community had been made aware of NSP by BRAC and (see below) the DRRD They estimated that completion of the held a meeting with the elders (traditional project, while generally beneficial, would council) before the CDC was set up. (This only contribute 30 per cent of the villagers’ confirms the FP’s assessment of the impor- ACKUneed for drinking water. It would reduce but tance of the DRRD experience in dealing not remove the need to use briny water. (It with local communities, which was down- was not clear if the location of the reservoirs played by the OC.) was going to give equal access to all the villagers.) The CDC members did not give any more details of the actual process of setting it up 6.1.5 Activities beyond the NSP and the householders interviewed (see The CDC has so far not thought of other below) also did not elaborate. As explained projects or approached any organization. in the profile, 75 families are not included in (They are still implementing a first project the CDC. However, the other groups in this and are remote from any such contacts.) large community are represented by 15 active CDC members. They discuss the 6.1.6 Relationship between issues, exchanging views in order to reach a the CDC and government consensus, and tasks are allocated to indi- The CDC members said that they contact vidual members.They take notes of government whenever they have a problem important matters as well as minuting their and the District Administrator had also THE PROVINCIAL meetings. visited the village once. The community FIELD SURVEY REPORTS

150 elders had held a meeting with the DRRD householders). Consequently there was no before the setting up of the CDC. view as to next steps after the initial project. They also did not yet have adequate plans They described the relationship as mutually for maintenance. beneficial but thought that more attention to it on the part of government would However, they were actively engaged in improve the partnership, since the people managing the project, apparently to the sat- were more than ready to cooperate. isfaction of the villagers, who have contributed in labour and money as envisaged However, they said they take complaints to in the manual (see Household Survey the FP in the first instance, followed by the below). They were recording important OC if there was no result. DRRD would only decisions and minutes of their meetings (as be contacted if the OC failed to respond. well as their financial transactions; see (This reflects the way in which the DRRD Household Survey) in the interests of trans- appears to be marginalized in the manage- parency. A minority of householders inter- ment of the NSP even though, in this area of viewed were able to follow this and all the community relations, it does have experi- householders had been informed about the ence and competence.) government funding though no account was given, as in other communities, of 6.1.7 Relationship between regular meetings to update the villagers on the CDC and the FP the use of the funds and they had little The CDC thought that the FP had given awareness of how and when the CDC them good guidance on the process. They works. had overseen the work on the project for which their engineers had designed the In the light of this evidence, this CDC could structures, while on site the CDC leads the be classified as ‘able with difficulty’ to fulfil project. They had received orientation on its role and needing continuing facilitation the NSP and training in accounting and pro- and support. As the FP pointed out, the curement, both of which they found useful. remoteness and general lack of awareness At another point in the interview they and capacity of this community are likely to expressed what appears to be genuine satis- have influenced the time required to faction with the work of the FP: ‘They listen establish a fully functioning CDC. to us. They have been guiding and facilitating the process well.’ 6.2 Dai Zangi – Abkamari District 6.1.8 The capacity of the CDC Eight members of the CDC (all men) were In relation to the criteria in the Operational interviewed in the Chairman’s house. Manual for a fully functioning CDC, the CDC in Mobarak Shah still lacks full capacity. 6.2.1 Community profile In the first place although elected, the There are 295 families in the focussed household survey indicates that at least community. Main sources of livelihood are some of the residents did not vote and most farming, livestock, and carpet-weaving – householders had no understanding of it as women are the main producers of carpets. an institutionACKU of governance rather than a project management committee. There was Rich people can be determined from the also no evidence of the participation of number of animals they have and the land women in the CDC. The authority of the they own. There are some people in the CDC as the sole representative of the community who have up to 100 animals and community is also not established, although five jeribs of land who are the best off of all. there is a collaborative rather than con- The families with a middle status have 2–3 frontational relationship with the traditional men who are physically able to work and leadership, which suggests mature earn. Eighty per cent of families are poor, a judgement on both sides. number of which are women-headed.

As regards the planning and implementa- There are twenty women-headed families in tion of the project, the process of deciding the villages. There are 56 families which on the priorities for community develop- have either a widow or disabled people. The ment did not involve active participation by community demand is a clinic. They didn’t the community and there was no evidence have a school building, which they will have ANNEX A3: of a community development plan (though through another MRRD programme called BADGHIS PROVINCE some project ideas were mentioned by ‘school window’.

151 6.2.2 Legitimacy and acceptance of the CDC The CDC were able to implement the The CDC explained that the community is project themselves, providing both skilled still led by a council of elders, but that the and unskilled labour from the community. CDC is in the process of replacing it. For the They already had an electrician, a good time being there is good cooperation mason and two mechanics in the between the two councils, especially as two community and said the project had been ‘a members belong to both councils. learning opportunity’. Skills such as these are also normally transferred where they are The CDC has only been able to change the needed in the neighbouring villages. way the community is governed in some aspects. At present it deals mainly with CDC members all participated and key economic development while the other members, especially the Chairman, were council still ‘takes care of political aspects’. fully occupied with it, spending a lot of time (The householders interviewed were also monitoring it on site. (The householders aware of this compromise.) interviewed also described a high level of paid and voluntary participation by the 6.2.3 Functioning of the CDC community and CDC members.) in relation to the whole community BRAC had informed the community about The main benefits they envisaged from the the NSP, though (see below) DRRD was also project were that their children would be involved. The CDC has 13 members but able to study and the women would be able only considered 11 ‘active’, saying that the to see better for weaving and increase their two who could not give time to the CDC carpet production. They also seemed to would be replaced. think that it would be cheaper than buying oil for lamps. They meet weekly to discuss matters and try to reach a consensus. If they can’t agree The FP had made them aware of the need to they then get the rest of the community plan for maintenance and they had decided involved. to hire someone to look after the machine on a full-time basis. They talked of ‘putting They are not able to document much of together a fund’ to pay for this and the cost their work, but showed some records. The of fuel. However, they had not yet worked problem is that the member elected by the out how this money would be raised. people to be secretary is illiterate, but they feel they must respect his election because 6.2.5 Projects beyond the NSP it ensured the equal participation of The CDC was already discussing a school different sub-tribes. (Unity and peacebuild- project with the DRRD that would be ing were the main benefits that the house- funded through a different programme holders interviewed attributed to the CDC (school window). While the ‘other’ council in their community.) of elders was generally taking care of other issues in the community, the CDC does 6.2.4 Projects sometimes try to resolve disputes, referring The CDC members described how, with the them to the tribal council if they fail to help of the FP, they started discussing prior- ACKUresolve them. ities within the CDC but were split between an electricity project and a school project. At They also said that they had now learnt this point they put the matter to the enough from the initial project to be able to community and a majority opted for the spot the ‘mistakes made by the engineers’ electricity project. (It seems they were in any future projects. asked to choose between these two options only, rather than being asked to list their 6.2.6 Relationship between suggestions at the beginning of the process, the CDC and government as in CDC processes elsewhere. The house- They said they support the government holders, for example, mentioned a number because they elected it. Their main contact of ideas, especially a clinic. However, this with government is now through the NSP, would depend not just on their choice but and the provincial director of DRRD has the ability of the health ministry to allocate visited them three times. staff. Since they are now to have a school anyway, this was presumably already con- They said ‘of course’ the relationship is templated by that ministry.) good. They described it as a ‘people’s gov- THE PROVINCIAL ernment’ and thought the partnership FIELD SURVEY REPORTS

152 would improve with more cooperation. 7. The Household Survey They could even cooperate over security. – CDC communities Nevertheless the NSP had already improved it a lot through ‘the trust the government has put in the people to have the power to 7.1 Mobarak Shah decide’. – Ab Kamari District A community with a CDC and a project They had however had some complaints being implemented. and they had put these to the Minister when he was in Badghis. Apart from that they Summary of results normally complain, if they need to, to DRRD, the FP and the OC. 7.1.1 The sample Representatives of 9 households (8 men 6.2.7 Relationship between and one woman, a widow) were inter- the CDC and the FP viewed. The smallest household had 6 They said that the FP ‘over all’ had been members and the largest 32 (average 14) good. They were always accessible, but all the households seemed to have complete their part of the work on time and adults of more than one generation, or had given useful guidance. However they siblings and their families together. have some ‘shortfalls’; for example, lack of professional staff. From other comments, it One family was headed by a widow and two seems that the engineering input was unsat- by war-disabled men, one of whom had a isfactory. sick wife. Several families had other dependents: one with three disabled adults, one Apart from the facilitation by the FP, already blind woman and two paralysed men; one described, they had been on exposure visits with a paralysed man and another sick to other communities implementing NSP person; one supporting a widow and a sick projects. This convinced them that projects woman; one with a disabled man. Poverty, carried out directly by communities were of lack of a water supply and distance from any a higher standard than those implemented medical assistance (see the CDC community by contractors. profile) leading to poor health, seem to have been the factors leading to depend- 6.2.8 The capacity of the CDC ence in the majority of cases, not war injury. This CDC, while still negotiating its position with the traditional authority, had estab- Three households were farmers of their lished its legitimacy and involved the own land. Two of these described them- community in its activities. The involvement selves as of ‘middle’ income in the village; of women was not evident in the CDC itself one had two cows. The third, one of the (no women’s shura was mentioned) but the larger families, also kept 70–80 head of women had voted in the CDC elections and livestock and harvested pistachio. They con- the first project was aimed at enhancing sidered themselves ‘rich’. Another large their earning capacity (a benefit for example family with only 4 male members (including to the female headed households and those the disabled head) to 16 female, were nev- with manyACKU women members, including ertheless ‘rich’ because they kept a shop. widows). Four families lived from paid labour (in two cases on the NSP project); in one case CDC members were fully aware of all the combined with some cultivation. Three of requirements in the Operational Manual these considered themselves ‘poor’ and and the council was complying with them one ‘middle’. Another ‘poor’ household within the constraints imposed by the need made a living from ‘a donkey for transport’. to negotiate inclusion of all stakeholders. (This householder became uncooperative with the enquiry and refused eventually to They had acquired the capacity to manage respond. However, since he claimed that his projects, building on existing capacity and life was worse after the war, he may have proactively learning from this first experi- been making money in some way from the ence. They were already looking to further war.) development activities. On this basis, this CDC can be described as ‘able’, even though All those interviewed were Tajik, which is it has not yet achieved the model of gover- the predominant ethnic group in the area. ANNEX A3: nance envisaged by the NSP. BADGHIS PROVINCE When compared to the community profile

153 given by the CDC and the district profile ing, though the widow thought it was since from the FP, the sample seems to provide a the year before. None of these had voted in representative cross-section, though the the election. sick and disabled may be over-represented. Five respondents, who all voted in the 7.1.2 War experience/post-war elections, suggested periods from 4 months All the families remained in the village to two years. (As in other communities during the war and did not seem to have these answers probably relate to different been under constant threat in their homes. stages in the process. The respondent who One family said they were unaffected by the said two years was the one who knew most war. The shopkeeper was shot and disabled about it and probably followed the process and his house was looted. One of the from the start.) farmers also had his house looted. Another had been injured, but not otherwise One disabled householder, who was clearly affected. The widow said her husband was following the work of the CDC, knew that injured once, but he died later of illness. the project had started 3 months ago, but (These may have been fighters or just could not say when the council had started. unlucky.) Three families spoke of men from He had also not voted. the family who were ‘martyred’, one saying the family were ‘in the Jehad’. These cases As regards community decision-making clearly refer to fighters. before the CDC, the widow and the severely disabled householder said they did not Nevertheless, the main improvement in know. Three others said a council of elders their lives since the end of the war (cited by and Mullahs determined the priorities. seven of the nine) is peace and greater Another 3 said ‘another council’ of repre- security. Three mentioned the assistance sentatives decided, and one said there was through the NSP and others referred to the ‘no organized effort.’ wider context: democracy (one), reconstruction (one), more employment (one), 7.1.4 General understanding and awareness greater national unity and international There seems to be a compromise and support (one). informal separation of spheres of interest between the new CDC and the existing One householder simply said his life had council of elders: the CDC dealing with not improved: it was worse. project development and the elders retaining the role of representation to gov- 7.1.3 The history of the CDC ernment. The majority of householders Three householders described the CDC as therefore saw the CDC only in its role as an an elected council for implementing the implementer of development projects and NSP and its projects or, as one said, to valued it for its practical impact on their ‘streamline’ the delivery of assistance from lives. government. One of these said that BRAC had explained the whole process to them. As in other communities, the most disad- Two others were less specific, saying it was vantaged had very little involvement in or to ‘serve and help the people’ and to tell ACKUknowledge of the functioning of the CDC. them ‘how to work’. One respondent gave a very detailed reply: ‘The CDC is for NSP. It is The majority of householders could not say a very important programme. It is linking anything about the financial management, the people to the government. The best but those who were able to follow it were practice of the programme is the fact that satisfied that it was transparent and people have been given the decision- competent. making authority. This certainly has a very positive effect. People are very interested in However, the majority did understand that CDC since they know it is in their interest.’ the money was being delivered to them by government. Some were also aware of other However, 3 respondents, the widow, one of government initiatives for reconstruction. the severely disabled and the respondent As a result the majority did think the gov- who eventually refused to answer ernment is interested in their community, questions, said they did not know what the and two cited this as a reason for optimism CDC is, though the disabled man said he for the future. The implementation of the knew someone who is a member. They also project had therefore encouraged some THE PROVINCIAL didn’t know how long it had been function- feeling of national solidarity. FIELD SURVEY REPORTS

154 The majority did not recognize any impact it was the community’s initiative in deciding on community solidarity, but 4 did see that on the project and asking (one said there was less conflict as a result of the CDC ‘demanding’) money from government. and two of these perceived its political role. There were two non-responses.

7.1.5 The CDC today Five respondents did not know if the community had applied to any other organ- Functioning/legitimacy izations for funding in the past and one was Five respondents could not say how often certain they never had. However, the chair the CDC meets. The other 4 all said it meets of the traditional council said they had weekly, one saying on a Thursday. Only 3 applied to both NGOs and government and expressed any opinion about how it works. had been surveyed by WFP and a Norwegian One simply said it meets to ‘discuss what it NGO but without success. Two other is best to do’. Another, who had said he respondents were aware of these unsuc- doesn’t know when it meets, also said he cessful efforts. didn’t know how it works because, ‘they don’t let the poor participate’. Despite their lack of knowledge of the functioning of the CDC, all 7 respondents The most prosperous member of the group (except the severely disabled and the and a traditional leader, however, said it elderly widow), had participated in the works well and there is more understanding project: three as paid labourers; two as a result of the CDC. In response to the (including the respondent who answered next question he said he is the chairman of no further questions) had contributed 10 the council, which leads the community. per cent to the community fund and one According to 3 others who answered this day of voluntary labour every 10 days; an question, this is not the CDC but the pre- elderly farmer had contributed 20 per cent existing council composed of elders and and his grandsons had worked; the chair of Mullahs. Two other respondents suggested the traditional council had worked voluntar- that the CDC and the traditional council led ily. the community. (These responses confirm the statements of the CDC about the The traditional chairman said the council current [transitional] collaborative arrange- and the villages had participated and there ment between the two councils: see also had been only ‘limited’ difficulty in getting below the chairman’s enthusiasm for NSP.) this participation. Four others simply said the villagers participated and there had The severely disabled householder and the been no problems. Four could not or did elderly widow found it difficult to answer not answer. this and most of the other questions about the CDC. The respondent who eventually On the subject of future projects, 3 refused to answer any questions gave no mentioned a road project, one a livestock response to this one. project for widows and one clinics. Another simply said they let the CDC know their The chair of the traditional council said it needs so they could find resources and ask was workingACKU closely with the government the government for assistance. Four did not and from time to time visited the district know. administrator. Two other respondents thought that maybe sometimes the leaders Financial management worked with government. Two said no they Four respondents had nothing to say on this did not, and the rest said they did not know. subject. One said the elders knew about it and another said he knew about it ‘to some Projects extent’. Three were confident they knew The respondents were more forthcoming about it: one said that they made the CDC on the subject of the project. Five, including accountable (perhaps orally?); another that the Chair of the traditional council, had no they were able to ‘trace’ the procurement doubt that the money came from the gov- and expenditure; the chair of the traditional ernment through a government progr- council said it was recorded in the registers amme. The elderly widow and one of the of the CDC. farmers also thought it might be government. Only one described it as a partnership 7.1.6 Impact of NSP/CDC ANNEX A3: of the CDC, the FP and the government By this point 3 respondents had clearly tired BADGHIS PROVINCE using government money. Three others said of the interview. One said he had given a

155 page of information and that was enough. clean drinking water in the village, 3 The widow and the severely disabled house- mentioned retaining walls to contain the holder probably found most of the stream in the village and 4 also mentioned questions irrelevant or beyond them. roads. Two respondents (not themselves disadvantaged) started by saying assistance Two others found it difficult to give a for the poor and needy, such as disabled general assessment of what NSP/CDC meant and widowed. The widow thought a clinic to them. Three associated it with develop- and food were her priorities after the ment and progress, bringing work and drinking water. The rich farmer and tradi- better lives. The traditional chairman also tional leader wanted help for agriculture called it ‘a very positive step’ and said the and livestock as well as electricity. Another CDC was the best entity for the implemen- farmer first said, ‘more peace’ then thought tation of development projects. (Reserving of wells, tractors and electricity. other roles to the elders). However, one respondent (the shopkeeper) stressed the Three had no comment on the future. political role: its promotion of ‘equal partic- However, the widow and the severely ipation’ and an end to ‘dominance and disabled householder both responded to manipulation’ by a few – ‘no more use of the this question and said they supposed there gun’. (This matches statements from other would be no more war. Another thought communities that CDC helps to reduce the things were getting better because the influence of warlords and former fighters.) conflict is over and there are ‘no more guns in public’. Thinking about how it had affected their lives, some were able to see some practical One felt optimistic because of the recon- impact, or the prospect of it: work, the struction in the country and the assistance means to get food and access to clean being given. Another said simply, ‘The drinking water in the village were mechanism seems to be working.’ mentioned by 4 respondents who had not commented on the general impact. No one The traditional leader again spoke at length: could think of anything else that had helped the community. ‘I am very optimistic. There is justice. The rule of law helps to develop. Five were silent on the subject of village There is less interference from our unity. Four thought there was less conflict neighbouring countries. The and more unity, peace and harmony. The international community has been traditional leader spoke at some length: on our side and making many sacrifices – even sacrificing their lives. ‘Continuous meetings give the chance The investment made in Afghanistan to people to know each other better is making us further optimistic.’ resulting in reducing the hatred and conflicts. The inclusive participation has proved to be 7.2 Dai Zangi – Ab Kamari District very useful in promoting unity.’ A community with a CDC and a project ACKUbeing implemented. On the subject of government plans, 3 spoke of reconstruction of roads, the Summary of results provincial capital and the surrounding villages. One said they were helping widows 7.2.1 The sample and orphans. The researchers noted that One woman and 7 men representing 8 the traditional leader, a former district households were interviewed in their administrator, spoke at length showing homes. There were no nuclear families. All detailed knowledge of government plans. households included at least 4 adults, of different generations or siblings. The Six respondents had no doubt that govern- average family size was 11–12 with 5–6 ment is interested in the community. One children, the largest having 20 members, 10 said ‘Yes, 100 per cent’. Another said since of whom were children. Four said they had they backed NSP they might help again. no dependents although one of these was himself disabled. Another disabled house- 7.1.7 Confidence in the future holder was responsible for his blind mother Thinking of what might improve their lives and sick wife. One householder had a THE PROVINCIAL most, two referred again to the prospect of mentally ill daughter, one a disabled son FIELD SURVEY REPORTS

156 and one cared for two elderly relatives. One of these thought things were generally None seemed to have been injured or ‘moving’. One householder, the shop- impaired as a result of war. keeper, thought there is more employment but two others that there was no economic The woman householder made a living from improvement and the Mullah said they had carpet-weaving and owned a donkey. had more drought. Carpet-weaving was one of the economic activities (probably of women) in 6 other 7.2.3 General understanding and awareness households. Five also had land (in two cases The householders were generally aware of at least, rain-fed only). Four of these had the aspirations of the NSP and knew that it livestock, but in some cases only a few is a government programme. Most did not animals. The head of one of these families mention BRAC, or ascribed a secondary role was the Mullah who had 20 sheep and more to it. The exact status of the OC was not land than the rest. He also received contri- known, but he was mentioned by name. butions from the villagers for leading They also understood, in general terms, the prayers in the Mosque. Pistachio nuts were purpose and functions of the CDC and in collected for sale by 5 households most cases saw it as providing a better rep- (including the landless) and one kept a resentation than the traditional council, par- shop. Three families received some remit- ticularly by representing all the tribal groups tances from a brother working as a labourer and including everyone in the project. Some in Iran. One landless family earned from day recognized that the tribal elders were still labour on others’ land and from the NSP part of the decision-making process, some project. at least as CDC members. Some hinted that there were still differences. Five families described themselves as ‘middle’ income (though in some cases this The majority did not know about the clearly only meant they are not the poorest detailed working of the finances or what of the poor). The shopkeeper, who also had went on in the CDC meetings, but knew land and livestock and carpet-weavers in his when it met, felt they were informed about household of 20, said he was rich. The purchases or were free to ask information. It elderly woman and the other landless seems that they felt no need to be further householder described themselves as poor. involved. One did understand the Block Grant system and how it was being used. All the householders were Tajik, which is the ethnicity of almost all the population in They had a similar confidence that the gov- the area. ernment was acting in the interests of the country, without having any detailed The sample is broadly representative of the knowledge of its policy or programmes. community as described in the CDC Their opinion was apparently influenced community profile and consistent with the more by what they were now seeing on the FP’s description of the general population ground, especially NSP. Their aspirations for in the district. the future were concerned with material improvement, employment and economic 7.2.2 WarACKU experiences/post-war growth and the continuing stability made Five households were displaced during the them hopeful that things would get better. war, the woman to the mountains and two to neighbouring villages. Two did not say 7.2.4 The history of the CDC where they went. One of these left when a The majority of the householders (5) relative was killed, but his house was not described the CDC as their national solidar- looted. The other said a relative was ity council, two adding that it ‘encourages martyred. peace and unity’ and ‘brings resources and funds to the village’. The woman was unsure The other 3 households said they were not but thought it was a council. Two house- much affected by the war, one because he holders described it as a council set up by had already left to work in Iran. All thought BRAC. One of these added that it ‘encour- things were better since the war ended. Five ages cooperation between people.. The said there was more security and peace. Mullah, however, said he was too busy to One of these, the Mullah, dated this know much about it. (He was probably a increase in security from when the Soviets member of the traditional shura, see below.) ANNEX A3: left. Another related it to the demobiliza- BADGHIS PROVINCE tion. Two said there is now more stability. The estimates of how long the CDC had

157 been functioning ranged from 6 months to one said government representatives had two years. While all had participated in the been at the CDC opening ceremony. election (two stressed that everyone, men and women voted, the Mullah said he had Projects been ‘consulted.’), there was little When asked who initiated the project and knowledge of how the electoral commission where the money came from, 3 said that it was chosen. Most did not know, the Mullah was BRAC with money from government; 3 gave no answer, two said the people had said it was the government or MRRD for chosen them at a meeting and one said government, and one said it was the DRRD BRAC had chosen them. and the OC (named) with government money. When asked about decision-making prior to the CDC, the woman said she did not know Four said they had approached government and another householder said this kind of and NGOs in the past whenever there was exercise had never been done before. The an opportunity but nothing had come of it. other 6 all described traditional arrange- The others were not aware of any ments: a shura of elders and clerics; named approaches. Arbabs; a monthy shura of representatives from 16 villages. One of these added that it The woman and one of the disabled house- was for conflict resolution and had never holders had not participated in the project been like the CDC. One later also but all the others had: another disabled man mentioned the power of warlords which as overseer; one with paid labour; one with had now been replaced by the rule of elders paid labour and voluntary days; one with and the CDC. (voluntary) labour; one by paying the 10 per cent contribution. They all said the other 7.2.5 The CDC today villagers including the CDC members had also participated and there had been no Functioning and legitimacy problems in getting them to join in. Six of the respondents thought the CDC met once or twice a week. The woman said They were also aware that the CDC had she was too old a woman to know, the other projects in mind: a bath house Mullah said he was too busy. (In fact he had (Hamaan) and a project to assist widows to cut short the interview at this point to go and the disabled were mentioned. The and lead prayers.) elderly woman did not know of anything but said ‘Karsai has helped so far’ and no Four respondents could not say how the other ‘king’ had done that before. CDC works, though one had heard that it works well. Another said, ‘The CDC knows, Financial management not me.’ Another said it meets to talk and The woman did not know about the make decisions, but as he was not a member finances and one other respondent said he he couldn’t say more. Two respondents gave did not know and then gave a figure for the an explanation: one said it ‘belongs’ to the money received. Five others said either that DRRD and implements projects; the other they were given information whenever they said it works democratically and well and ACKUasked or that those responsible reported or the finances are made public. were accountable to the villagers for any procurement. Two said they did not know When asked about the leadership of the the details of what was done in the CDC, community 4, including the woman house- one of whom asked, ‘Do I need to know?’. holder, said unequivocally, the CDC; 3 described an accommodation between the Three could not say how the Block Grant traditional leaders and the CDC; one said was spent (or did not understand the the elders led the community but some are question?) and one said it was handled by in the CDC; two said the community was led the procurement team. Three knew it was by the CDC and some elders; one respon- being spent on a generator. One of these dent gave no answer. explained that the first instalment was used to build the generator house and to As regards contact with government, apart purchase the wiring and that the second from the woman, who did not know, the instalment would buy the generator. respondents said the CDC was certainly in contact. Two said they had been to see both 7.2.6 Impact of NSP/CDC THE PROVINCIAL the District and Provincial Governors and Five respondents described the NSP/CDC as FIELD SURVEY REPORTS

158 ‘unity’, ‘solidarity’, ‘mutuality’, ‘being any assistance would be useful while together’. ‘Peace’, ‘peaceful progress’ and another said they needed everything ‘strength’ were added by 3 of these. One (schools, clinics, roads etc.). Clean drinking other respondent associated NSP with water, schools, clinics and roads were also poverty eradication and ‘better lives’. The mentioned and one farmer said ‘help with elderly woman had no answer. livestock’. Two respondents thought more in terms of underlying conditions: One respondent had to go shopping and economic growth, security and employment did not answer any of the following opportunities for all. questions. Five thought the NSP/CDC had improved their lives or would do so. One The respondents were hopeful rather than said the electric light would help with the optimistic about the future, saying that carpet-weaving; the others could not things were improving. One said better explain why things were better and one security allowed them to concentrate on pointed out that the price of oil was more their work. Another felt more confident than they had expected. since the affairs of the village were run by the CDC. The woman householder Most said they had had no other help, but expressed no opinion. one mentioned World Vision and a Norwegian NGO as having helped, as well as naming the OC. (It was not clear if this was when he worked for an NGO or now that he 8. Matched community is OC.) without a CDC

The 5 who had described the CDC as ‘unity’ Charsangi – Ab Kamari District naturally agreed that there was greater unity This Tajik community shared many of the as a result of its creation in the village. problems of Mobarak Shah: lack of clean However, the respondent who first drinking water, remoteness and lack of described the NSP as for poverty eradica- transport preventing access to health care, tion, at this point said that the CDC, by inadequate schooling. Four elders of the including representatives of all the tribes in community, Arbabs, were interviewed in an the village, had created greater unity. open space in the centre of the village. Another made the same point and said the fact that they all participated in the project was a sign of unity, but warned that ‘there 8.1 Existing governance are problems’. The Arbabs explained that the community is governed by a council of elders who Most did not note any other changes, represent the different sub-villages. They except one who mentioned ‘progress and deal with all issues arising in the village work’ and one who thought the existence of except legal matters. These are dealt with by a representative council to guide the affairs another council of clerics. They therefore of the village was significant. considered that the leaders of the community are both elders and clerics. None ofACKU the respondents had any detailed knowledge of government plans. The woman simply said people are happy with 8.2 Development needs the government. Two others were confident and assistance that the government has long-term devel- They felt that they were unable to meet opment plans (like NSP as one said) and their basic needs. They need wells to be one thought there were plans for roads. Two dug. Many villagers die for lack of health others had no answer. care. Like Mobaak Shah they have no vehicle to take anyone to a clinic. The village All except the woman, who did not know, school does not provide education beyond thought the government is interested in grade 3. their community, citing in two cases NSP and paved roads as evidence. They had received virtually no assistance so far except from World Vision which had 7.2.7 Confidence in the future given some assistance for clean water; first Asked what would most improve their lives, by supplying clean water in a tanker, and ANNEX A3: most thought in terms of material assis- secondly by constructing some reservoirs. BADGHIS PROVINCE tance. The woman householder thought However, these measures seem to have alleviated rather than solved the problem.

159 8.3 Relations with government and sick or elderly and one was supporting perceptions of national solidarity elderly parents. The leaders do contact different government entities and the district administrator Four households described themselves as does visit the village. However, this falls poor. The widow’s family were landless and short of what they think ought to happen, lived by paid domestic work and making namely that ‘government and people quilts for sale. Another landless family relied should be constantly in contact’. There on paid farm labour. One disabled house- should be solidarity between the two and holder said he had no source of income. ‘government should know about our The war-disabled householder had a small needs’. plot of land and a donkey.

The other 4 householders all had land and 8.4 View of NSP livestock. Those with less land and fewer They had heard of the NSP as an MRRD animals described themselves as of ‘middle’ programme and knew that it provided Afs income. One of these (a former 10,000 per family towards development commander) also earned additional income projects. They therefore welcomed the idea as a teacher. Two householders had quite of a CDC. However, like their counterparts extensive land and more livestock. They in Mobarak Shah and Dai Zangi, they both made additional income from collect- expected it to complement not replace ing pistachios. One of these described other forms of governance in the himself as ‘rich’ but the other, with a community and that they would all household of 8 adults and 16 children, as cooperate with each other. (As the two ‘middle’. existing councils apparently do.) All the householders were Tajiks.

The sample is consistent with the general 9. Household survey description of the poor farming communi- of communities without CDC: ties in the district given by the FP, and Charsangi – Ab Kamari District closely matches the two communities with CDC, particularly Mobarak Shah. Summary of results

9.2 War experience/post-war 9.1 The sample Five respondents thought they had not Seven men and two women (widows) rep- suffered much in the war, because there had resenting households were approached for been little fighting in the village. One of interviews. One of the widows almost these was a former commander. Another, immediately felt she was not able manage since no one in his family was killed or the interview, saying, ‘My head is not displaced, said he suffered ‘indirectly’. Two working. I don’t know what I say.’ The of this group were displaced, but one said others all completed the interview. he took refuge in the mountains for short ACKUperiods only. The average household size was 12, the smallest had 8 members and the largest 24. Three other householders were more Only one was a nuclear family of a husband, directly affected. The ‘rich’ householder wife and 7 children. The others all had 5 or had a relative killed and was displaced to more adults and between two and 16 another village. One simply said he was children. The widow who completed an disabled in the war. The widow said her interview was vague about her family, but it brother-in-law was ‘martyred’, her house seemed to consist of herself and her was looted and she was displaced to the widowed daughter and a number of mountains. children, some of whom may have been of working age, but there was certainly no Seven householders thought things were male breadwinner. now better because there was more security, an end to fighting and peace. One said it Four of those interviewed were themselves was better because they had received some disabled or sick, and one had mental aid. The widow said things were no better problems. Only one said his disability was because she had no donkey and no cows. THE PROVINCIAL due to the war. Four said their wives were FIELD SURVEY REPORTS

160 When asked about what assistance they had respondents, so there seems little doubt received, two said they had never had any. that they are the leading figures in the The other 6 said they had had some food village. aid from a Norwegian NGO (the widow said it was from government). The former commander said that the warlords were no longer in control, so the community is led by the elders and religious 9.3 General understanding scholars and named one of the three as the and awareness head of this council. Two other respondents This community felt itself to be very remote named the same individual as head, but one from national government, but generally also mentioned one of the others. Two united under a traditional leadership, which described the third man as Arbab and they thought was working with the local leader. The widow named this man and one government when necessary. One respon- of the others as leaders. Two gave no names dent suggested that this council was newly but spoke of a representative council. One empowered since the warlords no longer of these, the ‘rich’ householder, said he was dominated. a member of this 15 member council.

Although the villagers recognized this lead- All the respondents said the village is ership, and were willing to participate in united. Three said ‘very united’ and two that community work if asked, they seemed to it had always been united. However, when take no part in decision-making or discus- asked how priorities were determined, only sion of community issues and were not the council member said this was discussed informed about actions taken on their in the shura. Two said priorities had never behalf. been discussed and the rest had no answer.

As they were already in touch with the FP, Apart from the widow who could not BRAC with a view to joining the NSP, they answer, they all expressed willingness to had some idea of what was involved. They participate in community work when understood that the CDC is an elected rep- needed, though two said they had never resentative council, that would give them been asked. The former commander/ access to funding and assistance they had so teacher said he had been called on to far failed to get. However, the most disad- represent the village on several occasions vantaged seemed to understand nothing and had been happy to do it. about either NSP or government. The head of the shura (who also works for On the whole, they did think the govern- the Department for Haji and Religious ment might be interested in their affairs) was said to be in regular contact with community, especially as a result of recent government by 3 respondents. Two others delegations and voter registration, but were certain that the leaders contacted gov- several were sceptical. Most were prepared ernment when necessary. Two others were to say they were hopeful for the future. This unsure but thought they probably were in view seems mainly influenced by improved contact. The widow gave no answer. securityACKU rather than any material improvements. The majority of the respondents did not know of any attempts that the community Responding to a survey was obviously an had made to get assistance from NGOs or unfamiliar experience to several respon- government before being in contact with dents, but less daunting for the men than BRAC about NSP. The council member and the women who both lacked confidence, to former commander were aware of many the extent that one dropped out of the applications that produced little response. interview. This might be due in part to being interviewed by men, but was also clearly Since the village was already in contact with due to their self-consciousness about their BRAC about joining the NSP, the majority (6) lack of education and knowledge. said they had heard about it recently. They understood it to be about electing a representative council, as a means of making 9.4 The community today their needs known and getting assistance. Three of the four individuals interviewed by Two spoke of it as promoting unity and one ANNEX A3: the research team as community leaders, added that it is one of the government’s BADGHIS PROVINCE were all named by at least two of the good recovery strategies. These six naturally

161 said that a CDC would be welcome in the ‘If our children were educated, village. they would be able to help us. If I were educated, I would have The widow and one other householder responded from the top of mountain.’ confused the CDC process with the voter (Dari idiom meaning, I would have registration for the general election (which given you very good answers) they clearly did not fully understand) and so could not say if it would be welcome. Four respondents said they were hopeful or optimistic about the future without giving any reason. Two said only God knows. The 9.5 Perception of national solidarity representative of the largest family said only The majority of the householders had little if there is paid work. Only the ‘rich’ man knowledge of government plans or activity. declared himself ‘100 per cent’ optimistic Five said they knew little or nothing. The because now weapons had been collected widow was one of these and said she did not (from the fighters) this would allow the even know ‘the new king’. Another said he destroyed economy to recover. thought the government was soliciting aid. Two were aware of government schemes elsewhere but saw no visible evidence of government working in Badghis, as it is doing in Herat and/or like what they hear on the radio.

Only the former commander/teacher had a positive view. He said the government had brought security and set up a parliament and he was looking forward to it. He also thought the government is ‘very interested’ in their community.

Three others thought that the presence of the researchers or previous delegations for vote registration etc. meant that government is interested. The shura member thought it is not much interested and another said it was not interested otherwise it would have done something. Two (including the widow) could not say.

9.6 Confidence in the future When asked what would most improve their lives, water projects for both clean drinking water and to enhance the rain-fed agricul- ACKU ture (wells and reservoirs) were the top priority for 4 respondents; roads and a clinic were other choices. The representative of the largest household said simply, ‘employment’. One elderly householder was perhaps rather weary of the interview and said, ‘You know better’.

Not surprisingly, the former commander and teacher had a more strategic view, citing security and stability as the first requirements, followed by education and economic growth. Interestingly, his view of the importance of education was also strongly advocated by the elderly widow, who included schools in her comprehensive THE PROVINCIAL wish list: FIELD SURVEY REPORTS

162 A4 Balkh Province Provincial Field Research Findings

Timing and scope of the research 1. NSP coverage and performance The research team1 conducted interviews and collected data in the Province between In Balkh Province, 6 (42.86 per cent) of the 25 October and 11 November 2005. Overall, 14 districts were engaged in the NSP. The the research strove to interview the main Afghan non-governmental organization National Solidarity Programme (NSP) actors (NGO), the Co-ordination of Humanitarian at all levels within the Province, from the Assistance (CHA), started as an FP in August 1 David Connolly (Team Leader) household to the Provincial Governor (as 2003 and had extended the NSP within four with Lida Rahimi and listed below). The overriding aim was to districts (CHA Provincial Management Asila Wardak. achieve representativeness, and thereby to Team, 26 October 2005). The second FP, UN- establish if there was a trend towards HABITAT, started its programme in February 2 Districts were selected based greater perception of national solidarity at 2004 and had extended it within two on vulnerability factors (level of the most crucial levels of the NSP, and districts (UN-HABITAT Provincial Director, 1 poverty and risk of drought or among Afghans in general within Balkh. November 2005). food insecurity), the number of returnees or internally The main research findings for Balkh displaced persons (IDPs), and Province are structured in 10 main sections. 1.1 Charbolak, Chemtal/Alboraz, security conditions. Other criteria This provincial report starts with an intro- Dawlatatbad and Keshendeh Districts may also have applied. Each year ductory analysis of the NSP coverage and Table 1 below details the coverage and per- FPs were invited to submit performance in Balkh based on secondary formance of the NSP as facilitated by the proposals to the MRRD to data. The second section reviews the CHA in the 4 districts of Charbolak, Chemtal mobilize communities in new methodological approach of the research /Alboraz, Dawlatatbad and Keshendeh. target districts and complete NSP team. The subsequent main analysis is activities in previously-targeted separated into the roles of: the government Table 1 demonstrates clearly the strategy of districts. FP proposals included as representedACKU by the Department for Rural the NSP and the CHA to engage and then a preliminary list of target Rehabilitation and Development (DRRD) at saturate districts with the creation of CDCs communities. Individual the provincial and district levels; the provin- and the implementation of projects. For FP contracts were awarded cial NSP Oversight Consultants (OC) and example, all the villages in Dawlatabad by province, to allow them to team; and the two Facilitating Partners (FPs) District were engaged in the NSP and all but focus on a specific geographic in Balkh. This is then followed by an analysis one of the villages in Charbolak District had area. The Government of of the findings from the sample of CDCs (CHA Provincial Management Team, Afghanistan intended to Community Development Councils (CDCs); 26 October 2005). Of course, this strategy is eventually offer NSP to all households within these CDC communities; based on the Ministry for Rural Rehab- eligible rural communities the selected community leaders without a ilitation and Development’s (MRRD) Roll- (www.nspafghanistan.org, CDC; and households within this non-CDC Out Plan, which identified target districts and www.cha.org). community. This report closes with some and established the total number of com- lessons drawn from an interview with the munities within each district to be 3 www.nspafghanistan.org Community Forum Development Organi- mobilized.2 Overall, based on the aims of zation (CFDO) in Mazar, which is inter- the NSP to reach 20,000 rural communities preted as the indigenous roots to the NSP between June 2003 and June 2007,3 Table 1 and the CDCs. demonstrates that the NSP was on track in Balkh Province.

163 Table 1: Performance of NSP

Charbolak Chemtal/ Dawlatatbad Keshendeh Total National Alboraz Totals (District (District (District (District No. 1607) No. 1608) No. 1605) No. 1610)

No. villages received NSP information 50 79 60 77 266 (336) (10,789)

No. of CDCs received training 50 79 60 77 266 (317) (10,110)

No. of established/elected CDCs 50 79 60 77 266 (317) (9785)

No. of CDPs made 50 (48) 79 60 77 266 (315) (9230)

No. of submitted sub-project proposals to OC 27 (24) 144 147 160 478 (480) (13,437)

No. of (1a) project proposals prepared 25 79 60 77 241 Unknown

No. of (1b) project proposals prepared 2 55 55 53 165 Unknown

No. of (1c) project proposals prepared 0 8 26 24 58 Unknown

No. of (1d) project proposals prepared 0 2 6 6 14 Unknown

No. of instalments transferred to bank 0 124 (126) 118 (127) 144 386 (401) (12,022)

Total no. of projects under implementation 0 109 99 130 338 Unknown

No. of (1a) projects under implementation 0 75 60 77 212 Unknown

No. of (1b) projects under implementation 0 34 30 53 117 Unknown

No. of (1c) projects under implementation 0 0 9 0 9 Unknown

No. of (1d) projects under implementation 0 0 0 0 0 Unknown

No. of CDCs received 2nd instalment 0 72 54 46 172 Unknown No. of women sub-projects 0ACKU 9 22 5 36 Unknown Pending sub-projects 0 1 14 18 33 Unknown

Completed sub-projects 0 20 (11) 21 (18) 14 (11) 55 (40) (2,617)

No. of all FP staff 28 20 20 20 108 (4185)

Block Grant disbursed (Afs) 133,460,000 106,372,483 94,514,309 76,701,927 277,588,719 6,314,007,527

Compiled from statistical information from the National OC (up to 30 September 2005) and the CHA in Mazar (up to 25 October 2005) 4

THE PROVINCIAL FIELD SURVEY REPORTS

164 It is important first to analyse the four secure funds for a project. That is, the NSP districts as a whole, as a more in-depth com- worked with rural communities of at least parative analysis of the two sampled districts 25 families. Villages with less than 25 is provided below. On the surface, there was families could join with nearby villages to a perfect success rate for the establishment become eligible to participate in the NSP.5 and training of CDCs and the drafting of Community Development Proposals (CDPs). Furthermore, 1(a)-type projects 1.4 Limited inclusion formed the majority of the CDPs across the Perhaps the most significant constraint of four districts. Apart from the district of the NSP in terms of reaching the most vul- Charbolak (as explored in more detail nerable was the capping of funds for sub- below), 84 per cent (approx.) of the total projects to 300 families.6 Primarily this proposals submitted to the OC had received limited the nature of projects. Furthermore, their first instalment of project funds, and in practice it was found that more than 300 this was typical of the performance in each families were using the projects because of of the three other districts. the needs of communities. This latter point was illustrated best by the example of the There was a similar success rate in terms of school in Markaz-e-Dawlatabad, which was the total projects under implementation. being constructed using the funds for 300 Within this, all or most of the 1(a)-type families but was really going to be used by projects and 50 per cent (approx.) of 1(bs) the children of more than 1000 families were under construction, while there were (detailed further below). few 1(cs) and 1(ds). Just over two-thirds of the CDCs had received a second instalment, A second important limitation was the with Chemtal/Alboraz and Dawlatabad concern that the NSP was not accommodat- Districts representing the highest in this ing the disabled, who represent 10 per cent regard. Women’s projects represented just of the total population and form one of the over 10 per cent of the 338 projects under most vulnerable subgroups. The CHA’s implementation. technical advisor had worked extensively with the disabled in Afghanistan as a special Most significantly, only 10 per cent (approx.) needs teacher before joining the CHA. He of the project proposals submitted to the had worked for eight years with deaf, blind OC were completed, and therefore the field and mentally retarded persons. He asserted research attempted to explore the reasons that the NSP did not do enough to include for this weakness in addition to the other the disabled within communities; that is, main facets of the NSP performance. did not make special provisions in terms of Nevertheless, based on Table 1, it is clear representation within the CDCs and, for that the communities appeared to be example, in access for the disabled when accepting NSP once they were engaged. constructing new schools and community centres. Although some of the 10 per cent 4 Figures in brackets are from were disabled from the protracted conflict, the OC’s document. Where 1.2 Dehdadi and Nahrishahy Districts a significant number stemmed from inade- the figure is lower, this can be UN-HABITAT had started 50 men’s CDCs quate health and sanitation and stretched explained by the more updated and 50ACKU women’s CDCs in Balkh from social services (CHA Technical Advisor, 31 information from the CHA’s February 2004. The original plan was to October 2003). This further emphasized the document. It cannot be create 70 each, with 34 CDCs in the district need for the state to make special provi- explained where the figure of Nahrishahy (suburbs which encircle sions within its national programmes.7 is higher. Mazar) and 36 CDCs in Dehdadi (outside Mazar) (UN-HABITAT Provincial Director, 1 The same informant stated that the NSP did 5 www.nspafghanistan.org November 2005). not include the Kuchis and felt that such inclusion was difficult, based on the 6 www.nspafghanistan.org Regrettably, it was not possible to gain nomadic existence of the group. However, access to statistical data from UN-HABITAT. the informant agreed that the group did 7 Through the impact of the Nevertheless, such data would have been have important needs relevant to the NSP latter on survival rates, the limited in insight because the CDCs were and that the Kuchis were staying for longer number of disabled Afghans relatively new creations. periods of time in certain communities. For was actually quite low. the latter, the example of Chimental District was provided, where a group of Kuchis had 1.3 Positive inclusion asked the Ministry of Education for a school ANNEX A4: It appeared to be positive that the NSP and clinic (CHA Technical Advisor, 31 BALKH PROVINCE encouraged villages to unite in order to October 2003).

165 This section first used statistical data to participating in follow up sessions. For CHA, provide a brief overview of the NSP per- senior management and all district staff formance in Balkh Province by focussing on relevant to each community were inter- the work of CHA in four districts. The NSP viewed. For UN-HABITAT, the Director, appeared to be on track in terms of Finance/Administration Head, and two coverage and financial instalments but only social mobilizers were interviewed. The 10 per cent of the projects were deemed research also tapped into the experience of completed. In particular, the data for two senior representatives from the CFDO. Charbolak District suggested deeper weak- Figure 1 below illustrates this focussing nesses in performance, and women’s approach. projects across the four districts represented only 10 per cent of the total under implementation. Alternatively, it was not Figure 1: Focussing approach possible to review statistical data for UN- to gaining access in Balkh HABITAT, which meant the findings from the field research below were especially insightful. Last, the brief analysis of Kabul inclusion asserted that the NSP was a crucial CHA Director unifying force for villages but three weaknesses were suggested: exclusion of the disabled; exclusion of the Kuchis; and the capping of funds to 300 families. Overall, Province this analysis proved the need for closer Provincial Governor; Provincial and inspection. Before examining the main district-level DRRD staff; OC and team; findings, it is important to review the main FP management and district staff aspects of the methodological approach to the field research in Balkh.

Communities CDC(s) and traditional shura and social 2. Methodology groups/institutions where relevant

The field research in Balkh followed the methodology of the overall PRDU evaluation, as detailed in the final report. Households Therefore, this provincial report will not Semi-structured interviews with include a summary of the data-gathering a pre-selection of 10 households techniques, the structure of the interview representative of the questions and the analysis of the data. CDC community or village Instead, it is important to reflect on the data collection process within the specific dynamics of the provincial context. Accordingly, this section addresses: the Access for the empirical research was based approach to gaining access; the selection of ACKUon consent, which resided at the four levels the samples; and the constraints to the field of authority: national, provincial and district research. (State), followed by local (community) and household (individual). For the latter two in particular, the “acceptance by local commu- 2.1 Approach to gaining access nities and their leadership” was gained by The field research aimed to reach a cross- carefully negotiating consent from those in section of key respondents that were repre- control by making the research objectives sentative of the range of actors within (or clear (Barakat et al, 2002: 1001). Further- relevant to) the NSP in Balkh; that is, gov- more, for research in the communities, the ernmental, non-governmental indigenous risks (for interviewees, local guides and the and international organizations, in addition research team members) and the overall to CDCs, households and social institutions security situation were assessed and and groups. Accordingly, the Provincial monitored, based on the advice of the FP Governor, the Provincial Director of the and community leaders to determine if and NSP, provincial-level staff and district staff when access should occur and then if the for Charbolak District, in addition to the OC research should continue (Goodhand, THE PROVINCIAL and OC team were interviewed, with some 2000: 13–14). FIELD SURVEY REPORTS

166 Access to key respondents from CHA and with interviewing the CDC was making sure UN-HABITAT in Mazar and in the districts the right members were interviewed. This was fundamental to identifying and then was addressed by constantly cross-checking gaining and maintaining access to the gate- names throughout the focussing approach keepers within each community. This in to gaining access. There was also the turn facilitated access to the sample of unavoidable problem of writing down households in each community. This respondents’ responses, which may have focussing approach demonstrated “ways to caused suspicion. This was countered by mitigate and compensate for” the “severe remaining aware of the respondent’s limitations to access” (Barakat et al, 2002: reactions, explaining the aims of the 992; and Goodhand, 2000: 12–13). It also research, ensuring anonymity and by helped the research team display a greater getting introduced by the gatekeepers (in “sensitivity to the local culture” (Barakat line with local custom) at collective and and Strand, 2000: 135–136). For example, individual levels (Pratt and Lozios, 1992: interviews were conducted to suit the 53–54). religious and work obligations of the respondents.8 Linked to this issue was the In justifying the selection of the FPs and consideration given to researchers’ self- districts/communities the work of both FPs presentation, that is, respecting the Muslim was researched, but the research team code of attire and the cultural emphasis on focussed on CHA because it was the more politeness and ceremony. established. Furthermore, in reflecting the aims of the NSP to empower Afghan actors, Notwithstanding the benefits, it was also it was decided that it would be more insight- important to maintain a distance from the ful to focus on this indigenous organization. FP representatives to avoid bias in UN-HABITAT was interviewed but had only responses. For example, despite making the recently facilitated CDCs, while CHA had purpose of the research clear before every identified, mobilized and formed many interview, it was crucial that the CDC and CDCs with ongoing projects. household members did not colour their answers based on a perceived association between the research and the operations of 2.2 Selection of sampled districts, the FP. communities and households The selection of the districts was made after It is important to identify some of the chal- consulting three crucial sources: the lenges related to identifying the relevant updated and comprehensive list of districts gatekeepers, and gaining and maintaining provided by the National OC in Kabul; con- access, which proved either difficult to sultation with each FP in Kabul and the FP at control or insurmountable. First, gathering the provincial level; and checking with the basic statistical information was difficult, general background knowledge of the although it was alleviated by building trust, Afghan researchers. First, as Table 2 illus- triangulation and in some cases multiple trates, three districts were visited in Balkh cross-checking. One of the main challenges and this formed the only non-random

8 This included always inquiring ACKU if permission was needed from Table 2: Overview of Samples the husband if an interview was to be conducted with his wife Communities Type District Facilitating No. of CDCs No. of social No. of alone; being flexible in the time Visited Partner interviewed groups in households taken to introduce the purpose community interviewed of the interviews; adopting Markaz-e-Dawlatabad 1 Dawlatabad CHA 2 of 2 0 10 customs and respecting cultural and religious traditions, in Choba Temorak 2 Charbolak CHA 2 of 2 0 10 particular, either refraining from Karni Khail or limiting the interviews on a Taimorak 3 Charbolak Non-NSP Traditional 0 6 Friday, the most important day shura in the mosque for the men, and during Ramadan and Eid. Yakhdan 1 Dawlatabad CHA 1 of 1 0 10 Alichopan 2 Dehdadi UN-HABITAT 1 of 2 0 0

ANNEX A4: Aliseena 2 Nahrishahy UN-HABITAT 1 of 2 0 0 BALKH PROVINCE

167 Figure 2: selection. Based on the time restrictions in benefits of the NSP. The third community, Location of Balkh and other constraints (see below), the non-participating, shared a similar Charbolak, the distance of the districts from Mazar was profile to the other two clusters of commu- Dawlatabad, a determinant. The districts of Chemtal/ nities, to permit a comparative analysis. Dehdadi and Alboraz and Keshendeh were ruled out Nahrishahy Districts, since they were at least six- and four-hours In selecting the three clusters, relevant Balkh Province away by car, respectively. Security was con- information and profiles of the communi- sidered although did not affect the selection ties were attained and then verified at the process. Furthermore, as found in the sources named above. This was then analysis of Table 1 above, Charbolak was checked with the CDC(s).9 A complete list chosen because of apparent weaknesses in was drawn up for all communities within the getting the proposals to the OC and thus first two clusters, and after rating each getting funds. Dehdadi and Nahrishahy ACKUcommunity in terms of their NSP perform- 9 Each profile was based on Districts were selected in order to provide ance the average communities were the size of households, the findings from urban CDCs near the city of randomly selected.10 As Table 2 shows, it proportion of rich, middle Mazar-e-Shariff. was not possible to locate the three and poor incomes, sources of community types in the same district, but livelihoods, ethnicity, and the Figure 2 illustrates the location of the 3 this did not preclude comparative analysis. number of vulnerable sub-groups districts within Balkh Province. or dependent/semi-dependent A representative quota of 10 households adults (elderly and/or sick, In keeping with the PRDU evaluation, the was drawn from each of the 3 NSP-partici- disabled, widows and widowers, selection of the communities was based on pating communities. As an approximate FHH with dependent children, three cluster types: those with a well estab- guide, 5 to 7 typical households were inter- returnees and IDPs), and the lished CDC(s), project approved and at the viewed with 5 to 3 households with vulner- age of adulthood. The presence stage of project implementation; one with a able subgroups, depending on the profile of and type of social groups and recently established CDC(s) and at the stage each community.11 Six households were institutions were also explored. of drawing up a project plan; and one non- selected for interview within the non-partic- participating community. The first two ipating NSP community. clusters were receiving or expected to THE PROVINCIAL receive the physical and non-tangible FIELD SURVEY REPORTS

168 Figure 3: Yakhdan Markaz-e-Dawlatabad Alichopan & Aliseena Location of 6 communities

10 For example, Markaz-e- Dawlatabad and Yakhdan were selected randomly from 144 available communities in Dawlatabad District. Coincidentally, the former represented the centre of the district. The community of Choba Temorak Karni Khail was selected randomly from Choba Temorak… the two available communities Taimorak in Charbolak. The other was Ahmad, which was one hour from the Charbolak district office 2.3 Constraints to field research original aims and scope of the research due of CHA. It was in the middle The main constraint to the field research to accurate planning, the expertise of the of drafting a proposal to build was time. In particular, Ramadan, the Eid Afghan researchers and the cooperation of a school (Choba Temorak Karni holiday period, and security restrictions set the FPs. The flexibility of all the interviewees Khail Men’s and Women’s by the UN guidelines significantly reduced also ensured all necessary access. In fact, CDCs, 27 October 2005; and the timeframe. In Balkh, Friday was a day off the provincial research team managed to CHA District Staff, 27 October for everyone and Thursday was meant to be research more communities, CDCs and FPs 2005). The non-participating a half day during Ramadan, although for the than originally expected while not compro- village, Tiamorak, was selected latter the research team managed to reach mising the qualitative focus. Furthermore, randomly from 31 non-NSP compromises. In particular, Ramadan meant the team leader used the Eid period as a villages in Charbolak District. that interviews were not possible after 4 pm timely mid-way interval to review and con- (at the latest) and this was compounded by solidate the data gathered, which made the 11 For example, in Markaz-e- a restriction on travel one hour before dusk. final week of field research more focussed. Dawlatabad the quota was In addition, the Eid holiday meant that 7 typical households and 3 interviews were not possible between the In conclusion, the PRDU’s methodological households of vulnerable sub- 2–6 NovemberACKU (inclusive), as these were approach to the NSP evaluation was well groups. The households were public holidays and the Afghan researchers suited to gathering the necessary data mainly Tajik with Arab, Pashtun were travelling to and from Kabul. The week within the contextual dynamics of Balkh. and Turkman. The CDC and prior to Eid also proved difficult, though not Overall, the research claims to be represen- CHA stated there were no social insurmountable, with people leaving the tative of the NSP’s performance within the groups (Markaz-e-Dawlatabad communities for the day to travel to the Province. First, while not every district Men’s and Women’s CDCs, bazaar in preparation for Eid. On Sunday 30 could be visited, the research team focussed 31 October 2005; and CHA October, Mazar was also raised to ‘white on rural communities far from Mazar in District Team, 31 October city’ security status after the shooting of addition to researching a sample of urban 2005). For all the communities, ISAF soldiers in the city the day before. This CDCs. Furthermore, insight into the NSP’s there was a balance in inter- meant there were 10 full days to conduct performance in Balkh stemmed from interviewed households located the research with the full research team. views with all the relevant NSP actors: at the centre, mid-way and The team leader was able to complete a Governor, DRRD, FP and OC and OC team. on outskirts of communities. further day of research alone, with one These elite-level interviews were in turn interviewee who spoke English. complemented by the random selection of communities based on strategic types. Last, ANNEX A4: However, these obstacles were unavoidable the random selection of households, based BALKH PROVINCE and, moreover, did not interfere with the on the profile of each community, ensured a

169 more accurate understanding of the NSP. It “at the beginning, people were not contact- is now appropriate to present the main ing us and gave up when some donors did findings from the research. not fulfil their promises.” (Director of the Balkh DRRD, 25 October 2005).

The Provincial Director made the following 3. The government DRRD recommendations to improve future (provincial and district levels) programme management:

The analysis of the findings from the inter- “The MRRD should explain more about views with the provincial and district levels the second phase of the NSP since now of the government are divided into there is a delay and a gap in the first programme management, and the experi- phase.” ence of the staff. The main positive element “The CDCs should not be granted 100 to programme management included the per cent authority because they lack wide acceptance of the NSP as a programme adequate experience and do not fully for positive change. Significant benefits for understand the impact of their authority. DRRD staff involved improved co-relation- For example, a CDC can insist on an ships within the various levels of the State electricity project but the government and between the State and communities; cannot provide this service so the CDC intra-governmental co-operation; the priori- is using their authority to create conflict tization of project quality over quantity; with the government.”13 familiarity with the official complaints On a similar note, he advised that “CDCs procedure; and the development of the should not have the authority to sign CDC as a permanent institution. Accord- contracts for small projects without the ingly, there was consensus that the NSP was involvement of the NSP.” (Director of contributing to nation building. Never- the Balkh DRRD, 25 October 2005). theless, programme management was experiencing some teething problems. One The DRRD district staff strongly recom- example was the slow expansion of the NSP mended that, “the budget of US $60,000 and this added to the other strains in should not be restricted to 300 families.” For capacity: limited (physical, human and example, “in some villages the totals were technical) resources; delays in the release of calculated before IDPs and refugees instalments; and some institutional jealousy returned”, which naturally leads to the between the DRRD and the FPs. Last, it is stretching of projects and/or the potential important to note the emergence of for intra-community conflict (District DRRD criticism of the Provincial Governor’s role in staff, 9 November 2005). The provincial staff the NSP and of course to include his concurred, noting that there were “cases of defence. 2000 families using a project based on the 12 The NSP Unit had two staff maximum funding allocation of 300 in Mazar and four in the field, families”, which were then not allowed to with an additional 9 staff on the 3.1 Programme management split into smaller CDCs. This problem, OC team (Director of the Balkh – positive on the surface stemming from the “rule created by the DRRD, 25 October 2005). The Provincial Director of the DRRD was ACKUMRRD/NSP”, was described as a “big source positive regarding the management and of conflict” (Provincial DRRD staff, 25 13 UN-HABITAT also raise this performance of the NSP since the inception October 2005). Governor Atta also raised example below but as a criticism of the Community-led Development this concern and advised that “a responsible of the government. Department in 2003. At this time, the NSP committee should come from Kabul and was the biggest of the six national pro- divide and accept them into two or 3 14 This consisted of a group grammes.12 The senior DRRD official stated normal villages … since the allocation of interview with operation staff that the programme was “welcomed by the money is not fair.” (Balk Provincial from both levels. There were people from the beginning” because “it Governor, 10 November 2005). 4 provincial DRRD staff and tried to reach and involve them directly”. one from the NSP Unit present. All were engineers and male. However, he appreciated that, “10 per cent 3.2 Mixed experience of At the district level, there were of the people are not satisfied” because “it is provincial and district DRRD staff 14 also 4 participants; all were male a very new concept and therefore difficult to and from Charbolak District. implement completely”. Second, it was Adequate training difficult as, “the expectations of the people The provincial staff had received “only a 3- are very high, for example, small shuras day workshop (activity training programme) THE PROVINCIAL want big projects”. Last, it was noted that, on the Operational Manual from the OC FIELD SURVEY REPORTS

170 office and 4 staff from the CHA”, with “no Quality as the main indicator of success other training and guidance” (Provincial Both levels of the DRRD prioritized the DRRD staff, 25 October 2005). The district quality (effectiveness) of work before the staff also attended this workshop, “on pro- efficiency (number of projects). This was curement, programme management, M&E best encapsulated by the provincial staffs’ and financial duties”, and added that the comment that, “[w]e emphasize the “DRRD director had two months of NSP capacity-building of communities rather training in the NSP in Kabul and was then than spending money.” (Provincial DRRD able to return and train us.”15 Both levels staff, 25 October 2005; and District DRRD emphasized the usefulness of the staff, 9 November 2005). Operational Manual and the cascading impact of the activity training programme, While the district staff praised the FPs for which allows them “to transfer to” and “train their “monitoring, commitment and work others, especially the CDCs” (Provincial ethic”, the provincial representatives criti- DRRD staff, 25 October 2005; and District cized the FPs for “always talking about DRRD staff, 9 November 2005). themselves, ignoring the government and the MRRD” instead of “explaining more Improved co-relationships about the government and the MRRD since The provincial and district staff overwhelm- we are funding it all.” (Provincial DRRD staff, ingly believed that the NSP had improved 25 October 2005; and District DRRD staff, 9 the co-relationships between the three November 2005). levels of government. The respondents also extended the “improved linkages” to Strained capacity between government and civil society. Institutional capacity was evidently weak There was a similar impact noted in the rela- and the respondents’ comments were tionship between the government and the grounded in the context of “the huge communities; for example, “it is very good number of obstacles”; and framed by appro- that the government is very interested and priate comparisons. For resources, it was available to work with the communities” noted that, “compared to the staff of the and “the people are getting involved” MRRD, we do not have enough transport 15 Therefore, it is important to (Provincial DRRD staff, 25 October 2005; and communication to visit communities”, note that the district staff referred and District DRRD staff, 9 November while there is “very limited technical staff” to more training and guidance 2005).16 in the field and at “MRRD headquarters”. than their colleagues in Mazar. These gaps were perceived to be wider still Overall, the former proved Governor Atta also welcomed the NSP, when juxtaposed with “people from donor more voluble on this topic thought it would achieve long-term accept- communities and international NGOs” and explained, for example, ance, and would form good relations (Provincial DRRD staff, 25 October 2005). that the “guidelines had 5 levels between the government and the commu- The district staff echoed these strains (“only and 15 steps for implementation” nities. He praised the nature of the projects, four of us with the capacity to carry out the and that they had “nearly finished which aimed to be cost effective with little NSP”) and thus welcomed “more capacity- Level 4” (District DRRD staff, or no administration costs. Furthermore, he building, training, M&E and technical/engi- 9 November 2005). was glad the communities would be getting neering skills”. The district level respon- responsibility: dents emphasized that some districts did 16 The provincial staff further ACKUnot have DRRD staff and noted that, “we are explained that: In the past, all the “The people should be involved in not monitors but we are here to learn”. For warlords and drug dealers ruined all the decision-making, needs the latter, they felt that the FPs’ experiences everything. Now communities assessment and setting the priorities. and resources provided the best opportuni- are involved in the decision- This involvement in the decision-making ties for improvement and thus, “met with making process, setting the avoids corruption and it means the FPs regularly; sometimes daily or weekly if priorities and want to get NSP is based solely on the needs of not monthly”. responsibility. In the past, the people. In the past, it was a donor- people always blamed the driven approach but now the needs As an exception, the district staff felt that system, NGOs and international are surveyed first. It is also positive not all the FPs’ community mobilizers were NGOs as corrupt. Now, people that NGOs and donors will act as adequately qualified, which “limited the are doing it themselves and are sub-contractors and the involvement transfer of knowledge to the CDCs”. In com- trying to get it right (Provincial of the government is required pounding the strains above, there was no DRRD staff, 25 October 2005). in all the projects.” doubt that the high number of projects had (Balk Provincial Governor, reduced the quality of the work. However, 25 October 2005) the district DRRD staff appreciated that ANNEX A4: there needed to be “increased coverage of BALKH PROVINCE the NSP so the more needy villages are

171 included, and where there are conflicts.” Second, the state representatives were (District DRRD staff, 9 November 2005). familiar with the NSP’s complaints pro- Similarly, Governor Atta recommended cedure and claimed its usage was positive as expansion “to all villages, because only 6 out it acted as a “proper system”. Both of 14 districts” were covered (Balk confirmed that potential or actual types of Provincial Governor, 25 October 2005). conflict were divided into “direct complaints from the CDC and the shura or via The provincial DRRD were satisfied with the the FP”, by the FP and then from miscella- quality of “current staff” who “do their best, neous actors. For each type, the initial especially in monitoring” (Provincial DRRD approach was to hold a meeting with all staff, 25 October 2005). However, this those concerned (CDC, FP, DRRD and NSP) natural assertion was contradicted at the and the provincial DRRD held a “weekly district level where it was noted that, meeting every Tuesday for two hours”. If “although the NSP projects involve con- unsuccessful, then a case would be sent up struction we do not have full engineers, the chain of authority within the MRRD only an assistant engineer, an economist, (district – provincial – national) (Provincial and an agriculturalist.” (Provincial DRRD DRRD staff, 25 October 2005; and District staff, 25 October 2005; and District DRRD DRRD staff, 9 November 2005). staff, 9 November 2005). Third, the DRRD officials looked to the In addition to the restrictions in transporta- CDCs as a permanent institution for com- tion and financial resources, the other main munities to cooperate with the government operational problem was “delays” in the because: they enjoyed a formal function transfer and release of instalments, which (legitimate authority and responsibility also affected the quality of projects. The through official registration to having provincial staff recalled various scenarios: proper letterheads and stamps); united pre- for example, “If a community is building a viously divided ethnic groups through the well and there is a delay of three months projects (by their type and through using after the first or second instalment, which the community saving boxes) and by instill- prevents installing the water pump, then ing the principle of equality and fair repre- sand can seep in and dirty the well.” sentation; and finally they made the people Furthermore, “If a community does not more determined to reconstruct and receive the second or third instalment then develop (Provincial DRRD staff, 25 October engineers will not stay on, so the 2005; and District DRRD staff, 9 November community has to hire guards to protect the 2005). site.” In demonstrating the widespread and systemic nature of the delays, the respon- In considering the last strength, the DRRD dents noted that communities had tried to officials seemed clear in their understanding pre-empt this problem by saving money of the relationship with the CDCs, “The from the beginning, but this means the relations are very good, very positive “quality risks being cut” (Provincial DRRD through visiting, advising and directing staff, 25 October 2005; and District DRRD them, though not interfering, nor control- staff, 9 November 2005). ling.” They also liked the development of ACKUthe CDC, with provincial level staff There were 3 main strengths, which could providing the example of a village where the act as opportunities in alleviating the strains WFP came and directly consulted and in capacity. First, both provincial and district worked with the CDC in order to distribute staff noted positive co-ordination among all aid “rather than having to get an NGO to do the relevant ministries/ departments, it”. In sum, “the NSP through the CDC although it seemed that this was an provides a way in for all other projects” 17 The researchers believed emerging development (towards improving (Provincial DRRD staff, 25 October 2005; these opinions, that is, project implementation).17 The Ministry of and District DRRD staff, 9 November 2005). the possibility of bias, was Education and the Ministry of Health were considered. Nevertheless, highlighted; for example, “Whenever we National solidarity co-ordination was described have needed to do a needs-assessment of a The provincial and district representatives as nascent since there were clinic or school the relevant departments affirmed that the NSP was contributing to no tangible benefits visible have supported us” (Provincial DRRD staff, the broad goal of national solidarity based to the researchers. 25 October 2005; and District DRRD staff, 9 on the binding nature of the CDPs and the November 2005). projects. Three insightful examples were provided: THE PROVINCIAL FIELD SURVEY REPORTS

172 …if there are three villages of different Finally, although pursued later, the Balk ethnic groups cooperating, the shura and Provincial Governor was the only state actor the NSP want to address one project who raised the need for improved gender to create solidarity among all three. equality, noting, “[w]omen should be given In Dawlatabad District, there is a school more chance to be part of the NSP at the for 3–4 villages of different ethnic groups. decision-making level and during the imple- In another village, Aornagha, Charbolak mentation of projects, for example, getting District, they are digging a well among small micro finance projects would be good 4–5 ethnic groups and this has had for their empowerment.” (Balk Provincial some positive effects on their relations. Governor, 10 November 2005). Of course, In Kishendeh District, the money for each the more challenging goal was to make village was low (because the number of these aims achievable in the communities. families in each village was less than the 300 quota), so they merged the funds and This section established some of the built a road for these three villages and positive aspects of programme manage- were very happy about this project. As ment for DRRD staff (provincial and district) individuals they are worth nothing but in Balkh, though highlighted some deep together they are fulfilling their priorities. concerns. Similarly, a review of the staff’s (Provincial DRRD staff, experience pointed to significant direct 25 October 2005) benefits from the NSP while revealing crucial strains in capacity. It is therefore This centripetal drive is commendable in appropriate to consider the support from terms of physical and psychological nation the OC and team. building. However, important, widespread limitations are detailed below; in particular, where small communities were restricted by geographical isolation. 4. Provincial NSP OC and team18

Regardless of communities merging, the These findings are presented based on a district DRRD staff argued that it was “a general self-assessment by the OC and team, good indicator of solidarity if [for instance] which highlight the strengths of: popular the treasurer is Pashtun, the head is Tajik acceptance, empowerment, improved and the deputy is Arab. We recommend that standards of living and relationship between the only way forward is for the communities the people and the government. However, to sit and work together as one group.” weaknesses included the capping of funds (District DRRD staff, 9 November 2005). to 300 families, the limited allocation of funds to women, and weak coordination As detailed further in this provincial report, among the NSP actors during implementa- Governor Atta had received criticism from tion. The main opportunity was the some communities, in particular Hazaras, approach to, and goal of, capacity-building. for interfering in the selection of NSP The OC and team understood their villages to fulfil ethno-political allegiances. capacity-building role and were satisfied In response, the Governor denied wielding with the management. Accordingly, they such discriminatingACKU influence and asserted perceived a development in institutional that, “the NSP decides by itself…the plan is and staff capacities but noted the lack of already fixed at the centre… I do not have technical staff among the DRRD personnel. the right to tell the NSP to choose the Therefore, they believed an 8–10 year exit villages.” He explained that, “the Hazaras strategy was more accurate. Despite an have a political problem with me and they initial positive account of the OC supervi- blame me, especially Muhaqiq’s people.” In sory role, a follow up interview uncovered 18 This consisted of an initial illustrating the NSP’s drive for equality, he important explanations for delays. and follow up interview. The noted that “In Charbolak, they are mostly team consisted of an engineer, Pashtuns and come under the NSP and the NSP/OC clerk, a data handler NSP will now focus on multi-ethnic 4.1 General (female), a monitor (female), Sholgra”. Governor Atta also claimed that an M&E specialist, an accountant this was propaganda for a wider campaign Strengths, Weaknesses, and two other local staff. because of his “opposition to the federalism Opportunities and Threats proposed by the Hazaras, Uzbeks and As strengths, the OC and team confirmed others” (Balk Provincial Governor, 10 that, “we are welcomed and accepted by all ANNEX A4: November 2005). the people because the money is going BALKH PROVINCE directly to the communities.” They provided

173 the example of the village(s) of Kashanda The OC and team could not think of specific Chakinah, where 13 CDCs reconstructed a threats and defined the central opportunity 50 km road costing US $240,000. There as “capacity-building for communities were three significant impacts: the project because of the new approach to donors” was decided and implemented (“in a proper (OC and Team, 26 October 2005). way”) by the community itself, not an NGO. This was crucial as it meant, “the CDCs represented a break from the traditional shura 4.2 Capacity-building role of the OC – a time when village elders and warlords were all-powerful.” Key to this development Definition of role and was the “secret voting system, which lets management of NSP people make their own choices”, thereby The OC and team defined their role as granting “authority with responsibilities to “giving technical advice, transferring money the elected representatives”.19 For to the CDC, controlling the management of example, it was believed that “the CDC and the overall programme and capacity- its subcommittees can now try to solve the building of the FP and DRRD.” They claimed problems of families” (OC and Team, 26 “100 per cent involvement in the manage- October 2005). Second, it meant the travel- ment of the NSP.” They were also “satisfied ling time from Mazar was reduced from 21 with the management capacity of the NSP hours to 7 hours. Last, it was considered “a staff in the MRRD [at all three levels]” and good approach by our government to think noted that they always “shared information” about and address the problems”, which (OC and Team, 26 October 2005). formed “a good bridge for relations and created good publicity for the government Developing institutional and and the MRRD.” (OC and Team, 26 October staff capacities and the exit strategy 2005). In using the programme to develop the institutional and individual staff capacities The main weakness noted, in echoing one within the DRRD, the respondents noted of the provincial and district DRRD’s the principle of always having “two-way concerns, was the maximum budget cap of communication during training” and during 300 families, which made it difficult to the weekly meetings. As promoted by the select, for instance, “300 out of 1000 NSP, the key themes are finance, M&E and families” to use a project. Moreover, in engineering. However, the last two were reality “it means that 1000 use the project, particularly problematic as the “DRRD do especially when it is a road or a school”. In not have complete staff”. Nevertheless, the sum, they argued that “the projects must OC and team believed that the DRRD staff have the capacity to be inclusive” (OC and were engaged in an active learning process Team, 26 October 2005). involving “engineers gaining field practice in the NSP, especially in terms of M&E”. The second flaw was the “limited allocation of money for women” (in practise and However, it was asserted that it would be against the Operational Manual). It was “very difficult” to transfer full management claimed that “95 per cent of projects for responsibility to the DRRD within the women are rejected”, with only the small ACKUproposed timeframe as “only M&E staff and proposals (under US $3000) accepted. For engineers have been trained”. Therefore, example, “Carpet-weaving may need a sustainability would require “the other staff 19 The respondents added that budget of US $10,000 to be sustainable, but to be trained, with a timeframe of 8–10 years there was evidence of some this is not possible under the NSP [or hard rather than the current 2–3 years” (OC and intimidation and interference at for the community to justify] when the Team, 26 October 2005). the beginning, but the process maximum budget for the community is US was transparent and fair overall $60,000.” In sum: “women may contribute (OC and Team, 26 October 10–15 per cent to the decision-making 2005). process but in practical terms their needs 4.3 Supervisory role of the OC are not given priority.” (OC and Team, 26 20 The respondent noted that October 2005). Towards resolving this, the Eligibility criteria the villages close to Mazar had OC estimated that it would take 4–5 years The OC and team stated that “80–90 per more mixed CDCs (OC and for the more rural-based CDCs to mix men cent of the project appraisals for construc- Te am, 9 November 2005). and women members.20 A third weakness tion complied with the eligibility criteria, was inadequate co-ordination during imple- especially because of strict monitoring by mentation. the MRRD.” However, as noted throughout THE PROVINCIAL the findings, this assertion was weak consid- FIELD SURVEY REPORTS

174 ering the limited capacity of the DRRD. The MRRD Minister and it is up to Kabul respondents believed that “60-80 per cent of now to find a solution.” (OC and Team, the proposals for capacity-building and 9 November 2005). social development were successful”. In general, they were familiar with the criteria. Overall, the findings from the OC and team interviews concurred with the consensus Delivery of resources that the NSP had created crucial benefits, In ensuring the proper delivery of especially in terms of the drive to empower resources, there were “four persons from communities, and the respondents clearly the CDC and one from the FP”. The OC understood their tasks and role. However, officers maintained there was “no problem the interviews also reiterated common within the NSP in distributing the funds as concerns; in particular, the limited involve- long as a report has been completed on ment/benefits for women within the com- time.” Then, once a project is approved, “50 munities, the budget constraint for each per cent goes to the bank and is ready for project, bureaucratic delays in the instal- the communities, followed by 30 per cent, ments, and the lack of technical capabilities and 20 per cent upon completion of further within the DRRD. The latter was a special satisfactory reports”. The OC also asserted concern in planning for the transfer of full that communities had to wait “a minimum management responsibility to the DRRD. of 14–17 or 18 days” for the transfer of funds from Kabul (OC and Team, 26 October 2005). 5. FPs (National, Provincial Of course, the positive account above and District Levels) conflicts with the clear prevalence of delays, as examined above and below. Therefore, The two FPs researched were CHA and UN- during follow up questions and a final HABITAT. The National Director of the interview, the OC admitted to the slow former emphasized the need for a more delivery of resources and identified five bottom-up approach and to allow the problem areas and recommendations. imported concepts behind the NSP enough time to evolve. Second, both FPs’ (provin- It was argued that “administrative delays cial and district levels) interpretation of stemmed from the processing of CDPs their roles reflected the programme in Kabul”, which partly explained the concept. However, there were varying low number in Charbolak District, for relations with the DRRD, which was charac- example. terized overall by limited capacity. In The OC said he had “received CDPs addition, strong cooperation with the OC from 50 villages in Charbolak, which had and team was noted by all. It was also felt all been processed and checked. The that the communities in general understood MRRD has only approved some of them the role of the FPs and government in the and some were sent back to the CDCs NSP, and there was some evidence of CDCs for further information.” (OC and Team, working directly with donors. Training in 9 November 2005). the communities was described as success- In addressingACKU a third “gap”, the OC ful, although illiteracy was a barrier to par- recommended that the “FP should ticipation despite the use of cartoon submit its report after 40 per cent of the booklets. It was clear that the engagement first instalment is spent, as opposed to with the NSP had caused the FPs to increase the current rule of waiting until 80 per capacity, which had been stretched at the cent is spent”, which would speed up start. The respondents claimed the training the process (OC and Team, 26 October had compensated, with staff possessing the 2005). right skills. The delay in the second instalment for the Dawlatabad school (see below) was The projects in the selected communities because of an unfortunate “bureaucratic involved social infrastructure, water supply mess”, which was subsequently and electricity. Selection seemed to be corrected (OC and Team, 9 November based on processes of community consulta- 2005). tion with leadership from the CDC; Last, it was noted that the cap of 300 however, few of the communities imple- families (see above and below) “was mented their first choice. Four other ANNEX A4: raised several times by all the relevant concerns involved project inefficiency, chal- BALKH PROVINCE actors within the Province up to the lenges to maintaining the projects, the lack

175 of women’s power and influence in the thought the uncertainty surrounding the implementation process, and there were no latter (in particular, the lack of an exit measures to protect the usage of the strategy for NGOs as the main imple- projects. The FPs maintained that the menters) was conditioned by the rushed necessary quality control mechanisms were timeframe imposed by the international in place for all the projects, but some fun- community: “The World Bank’s expecta- damental design weaknesses were tions were too high at the beginning, uncovered. therefore, now is not the time to phase out. We are not at the point yet where we were 25 years ago.” Also, it is important to 5.1 CHA at the national level 21 remember that, “across the country, the CHA was formed in 1987 in Afghanistan and CDCs are at very different stages of devel- focussed on four sectors: education, health, opment.”22 engineering, and agriculture. The NSP ran across all four sectors but was primarily Third, the CHA National Director stated grounded in their education sector. CHA that, “The future sustainability of the CDCs started operations in Mazar in 2000. depends on lots of money; for example, 16 Accordingly, the National Director raised a per cent of the Health Department is from number of salient points and recommenda- the Afghan government and the rest is from tions. outside.” (CHA National Director, 20 21 This consisted of an October 2005). interview with the CHA Achieving balances: development, National Director in Kabul, time and strategy, and funding 20 October 2005. For community empowerment, the Director 5.2 Accurate interpretations urged the government “to not just use the of roles within NSP: 22 The respondent believed CDCs as a tool but as part of civil society provincial and district levels 23 that this misplaced urgency because Afghan development demands The FPs’ interpretations of their roles in the reflected the Afghan National strong government and strong civil society – NSP were consistent with the programme Development Strategy, with they are good for each other.” Instead, the concept. its “short-term perspective” respondent perceived an imbalance with and its insufficient involvement the “government getting all the benefits at Facilitation at the community level of the communities. the expense of civil society”. In particular, it CHA and UN-HABITAT understood that was asserted that: their role was to act as facilitators at the 23 This consisted of a primary community level and this was grounded in and follow up interview with the …the CDCs’ and communities’ plans the NSP Operational Manual. CHA provin- CHA Provincial Management for development are limited to the cial staff ordered their duties as, “The first Team (Provincial Director, MRRD but plans need to come from time we had to select, facilitate and then Chief Technical Advisor and the the bottom-up and not just from Kabul. mobilize the community. We then explained Education Officer), 26 October Top-down is not good. Let the the elections and started the election 2005 and 8 November 2005. communities think about strategies but process.” District staff added that “we were The Provincial Director of UN- of course they need support. Let them very neutral during the elections and HABITAT was interviewed in experience successes and failures. provided information so they could choose Mazar, 1 November 2005. The most critical decision is for their own people”. Following this, they For the selected communities policy makers. ACKU“facilitated the registration of the shura of Dawlatabad, Charna Choba (CHA National Director, CDC, their account number and then Karna Khail, Yakhdan, Aliseena 20 October 2005) started the CDP.” Responsibilities after this and Alichopan, the relevant FP included “advising the people to help them district teams were interviewed This was deemed particularly significant as select the project and helped them write on 31 October 2005, 27 “people are questioning parliament: who the proposal.” While this required the “par- October 2005, 8 November was elected? Do they have the capacity? ticipation of the people we were kept in the 2005, and 10 November 2005. After 25 years of war, standards are low.” loop about the proposal.” Once the “CDC For the third-type (non-NSP) agreed on the project, the CDP was signed community, Taimorak, the A second necessary balance was allowing and sent to the OC.” ‘would be’ district team was the useful though “perfect and imported interviewed, 8 November 2005. concepts of democracy and civil society CHA stated that they “emphasized it was District teams included the development the time to evolve here, as better that the CDCs and projects were engineers, social mobilizers and they did originally in Western Europe and started by the community, which could then finance specialists/administrators. the US”. In sum, “expectations should be subcontract an NGO or construction tailored to the context”. Therefore, the two company.” Once a start date was set, it was interlinked factors of time and strategy were the responsibility of the FP to ensure the THE PROVINCIAL of “central importance”. The respondent CDC received the necessary forms for pro- FIELD SURVEY REPORTS

176 curement etc, learnt about the procedures There were also problems working with the for each phase (for example, book- Department of Education but these were keeping), and to “facilitate the fundraising resolved after several meetings (UN- and check the budget.” (CHA Provincial HABITAT Provincial Director, 1 November Management Team, 26 October 2005 and 8 2005). As mentioned above, one of the main November 2005). weaknesses in the NSP was matching needs with the budget available. While smaller UN-HABITAT outlined a similar role of facili- communities could merge under a larger tation: “explaining the NSP system to the project, UN-HABITAT staff raised the excep- community, conducting training, bringing tions to this. For example, “There was an the handbooks, guiding the identification of isolated village of 92 families that wanted a needs and priorities and helping the CDCs school but their budget was too small, even prepare their CDPs.” The Director admitted though it was their greatest need.” (UN- the UN agency’s initial scepticism but the HABITAT District Staff, 10 November 2005). communities were able to “participate and complete the relevant NSP tasks and follow CHA management stated that the MRRD’s the steps with regular training and capacity was good, especially “at transfer- guidance” (UN-HABITAT Provincial ring knowledge” (CHA Provincial Director, 1 November 2005). Management Team, 26 October 2005). Conversely, UN-HABITAT thought “the gov- The common positive perception ernment does not have the capacity and the CHA provincial staff described their NGO as FPs are filling for this. Perhaps in 3–4 years a “bridge for relations between the shura the MRRD can manage the CDCs, but until and government, since through them the then the OC has a lot of work to do.” (UN- community can contact the government” HABITAT Provincial Director, 1 November and vice versa (CHA Provincial Management 2005). CHA district staff were more critical Team, 26 October 2005). District staff and described the capacity of the MRRD concurred, noting that the people “were staff as “very low in terms of monitor- very happy the first time we came and they ing…not technical and not professional, think of us as their advisors” (CHA District especially when compared to the OC”. Staff, 27 October 2005). There was also a fundamental problem with the “MRRD staffs’ preference for poverty UN-HABITAT’s Director believed this orga- reduction which conflicted with the NSP”. nization’s “very good reputation in Mazar” In addition, the attitude of the MRRD field (from their experience with the CFDO, as staff was also perceived as, “never encour- outlined below) was an important influence aging when visiting communities” and this in gaining the people’s “trust” and enthusi- was contrasted with the “always positive asm (UN-HABITAT Provincial Director, 1 role of the MRRD Minister because of his November 2005). NGO background”. More widely, the district staff criticized the staff from other min- Varying working relations with istries, which are “sometimes very slow in the MRRD and their limited capacity their procedures, for example, the releasing CHA district and provincial staff described of instalments and cannot check reports joint relationsACKU as “very good” and coopera- because of weak skills, which all cause tive (CHA Provincial Management Team, 26 delays.” (CHA District Staff, 27 October October 2005 and District Staff, 27 October 2005). 2005). It was the same for UN-HABITAT but the Director added that the DRRD staff were Positive working relations with the OC “easier to reach and talk with”. There were CHA provincial and district staff were “very further problems working with the other happy with the work of the OC, who is government ministries and there was always advising and providing technical ongoing disagreement over electrical power support”. It seemed that problems were in Mazar. It was reported that 20 CDCs had always addressed by joint meetings been promised power from the city after (Provincial Management Team, 26 October submitting proposals. Despite conducting a 2005 and CHA District Staff, 27 October survey and collecting the money from the 2005). UN-HABITAT relayed similar experi- people, the respondent asserted that the ences (UN-HABITAT Provincial Director, 1 government then indicated it would take November 2005). two years for electricity to be distributed. It ANNEX A4: was asserted that the CDCs perceived this as BALKH PROVINCE corruption at worst, or destabilizing at best.

177 5.3 The strengthening of dialogue Successful training but between communities and barriers to participation national government through CHA and UN-HABITAT emphasized their the Programme structure efforts to deliver adequate training and CHA believed that the communities under- believed that this proved effective for most stood clearly and trusted the role of the FPs CDC members. Such capacity-building ini- and the government in the NSP (CHA tiatives ranged from teaching the general Provincial Management Team, 26 October objectives of the programme to more 2005). First, there was evidence of a greater specific instructions like budgeting, book- acceptance of legitimate state authority: keeping and filing, procurement, children’s rights awareness, mine awareness and For example, before the NSP, in a sub- natural disaster management. Training was district in Dawlatabad there was an also specific to suit the particular functions informal Governor and all the people of the CDC sub-committees (for example, used to go to him when they needed help. the role of chairmen, secretary etc) and However, after the CDCs, the people went followed the 5 NSP phases. Where possible, to the formal government, so the NSP in training was supplemented by the provision this example ‘collected all the people’ of satellite radios for the CDC to listen and (CHA District Staff, 27 October 2005) learn from capacity-building programmes (CHA Provincial Management Team, 26 Second, towards increased local authority October 2005; CHA District Staff, 27 and responsibility, the district staff added October 2005; and UN-HABITAT Provincial that where the government was unable to Director, 1 November 2005). act, the communities felt secure in their own role within the programme structure to The management at the CHA admitted “ask the CDC to solve problems and there were barriers to participation across conflict” (CHA District Staff, 27 October Balkh Province, with the 12 per cent literacy 2005). As an extension of this point, UN- rate in general representing the most signif- HABITAT noted the communities’ positive icant. This was especially problematic at the acceptance of the procedure to ensure the beginning. District staff claimed that “80–85 government and the FPs, “have to consult per cent of members find it difficult to the CDCs and sign an agreement concern- understand completely all the forms, and ing engagement”. The Director also noted they should be in very simple/local language that the, “FPs form the link between the to be made accessible.” Therefore, it was two” but the CDCs are, “solving many local recommended that the skills of the CDC problems and are official organizations”. He members needed to be improved and with explained: an increase in the distribution of “working” satellite radios. Management staff hoped Our CDCs now have rights, have an ID card, that this barrier was alleviated by their can raise problems with the government methodology and approach to training; that and agencies etc and write their independ- is, by starting at the elite level within the ent proposals. For example, JICA has CDC and then moving down gradually. approved proposals in two villages and will Using the local language was also attributed start in two weeks. Although this is the first ACKUwith helping the people understand (CHA time for this development, the NSP said the Provincial Management Team, 26 October CDCs will be introduced to other agencies 2005; and CHA District Team, 31 October (UN-HABITAT Provincial Director, 1 2005). UN-HABITAT “anticipated that illiter- November 2005). acy would be a barrier” and joined the NSP 24 The FP Director noted to prepare instructive pictures/cartoon that in general the treasurer Although the FP reminded that “the NSP is magazines. Accordingly, “each phase has a and the secretary have to be solving 1–2 problems but not all” (UN- cartoon handbook, in particular, for the literate and educated and this HABITAT Provincial Director, 1 November election of the CDCs, and this has proved is a prerequisite for these posts 2005). Third, all the FP respondents agreed useful for the educated and the unedu- in the election. Alternatively, it that the contact between the communities cated.”24 was asserted that “most chair- and local government had increased under men tend to be uneducated”. the NSP alone because this was the first time The time of the year formed the second, (UN-HABITAT Provincial for such coordination (CHA Provincial though variable, barrier. That is, people Director, 1 November 2005). Management Team, 26 October 2005; CHA were typically “too busy with farming during District Staff, 27 October 2005; and UN- the spring and summer months to partici- HABITAT Provincial Director, 1 November pate in the NSP.” Implementation can thus THE PROVINCIAL 2005). be limited when the men are unable to FIELD SURVEY REPORTS

178 conduct large meetings. Conversely, winter CDCs and the writing of the CDPs (CHA is more conducive for such community par- District Staff, 27 October 2005). UN- ticipation. The third barrier to participation HABITAT was reaching this busy stage and was that CDC positions were not salaried was thus concerned about “the next 3–4 (UN-HABITAT Provincial Director, 1 months”. The Director also noted problems November 2005). at the start when the communities found it difficult to understand the procedures of the NSP. He estimated that “40–45 per cent 5.4 The FPs’ capability and limitations of the 13,000 projects are of good quality, in relation to the programme demands but for the others there is concern that the quality will not be as good because the Increasing capacity to cope with the NSP CDCs have insufficient capacity.” Therefore, (Management level) he recommended that “it is better to start CHA argued they had to build their capacity, with 2–3 projects with the CDCs and with a knowledge and skills through various small grant of US $20,000 maximum so that training sessions and workshops conducted they can learn the necessary skills by themselves, OC and MRRD (CHA gradually.” Alternatively, he thought it was Provincial Management Team, 26 October better for the government and/or the UN 2005). District staff concurred that they agencies to implement the US $60,000 “had to learn more skills, use more social projects. The two problems were the mobilizers and facilitators, and hire a tech- “delays in instalments and monitoring is nician to ensure we kept to the regulations very weak.” (UN-HABITAT Provincial since it is a new programme.” This was par- Director, 1 November 2005). ticularly crucial “to maintain efficiency when the number of projects was high”. There Eligibility Criteria was also a test for all staff on applying the The CHA management team and the UN- Operational Manual (CHA District Staff, 27 HABITAT Provincial Director felt there was October 2005). UN-HABITAT’s history of no problem in applying the criteria to the developing the CFDO and in providing needs of the communities. CHA district staff training material for the NSP meant they agreed, but admitted it was difficult at the started with extensive experience (UN- start (CHA Provincial Management Team, 26 HABITAT Provincial Director, 1 November October 2005; CHA District Staff, 27 2005). October 2005; and UN-HABITAT Provincial Director, 1 November 2005). Post-NSP plans The CHA management team were opti- Allocation of staff and skills shortfall mistic because the election of the CDC For Charbolak District, CHA allocated 6 core members was an important principle staff for the NSP, consisting of finance, towards sustainability. Therefore, “even if administration, engineering (junior and there is no NSP in the future, the system senior), personnel, and a senior supervi- should still be there in addition because sor/manager. Only one of these core staff there was training on how to approach was female. In addition, there were 16 social donors.” (CHA Provincial Management organizers. Each project typically had six Team, 26ACKU October 2005). The district staff staff, 4 salaried (engineer, storekeeper, were confident as long as the “government finance and foreman) and two from the supports and funds the CDCs for another CDC with no salary. Projects in Dawlatabad 4–5 years; if this lasts for another two years District had one senior and one junior then the projects will die”. In sum, “the engineer, one facilitator, and a district CDCs do not have good sustainable officer (CHA District Staff, 27 October 2005; capacity.” (CHA District Staff, 27 October and CHA District Team, 31 October 2005). 2005). UN-HABITAT stated a similar UN-HABITAT claimed 18 staff were allocated timeframe to enable sustainability (UN- to the NSP, including managers, engineers, HABITAT Provincial Director, 1 November social mobilizers, reporting officers, and 2005). administration and finance. Eight staff members were female (UN-HABITAT Problems associated with District Staff, 10 November 2005). The processing the high number of projects Director’s account conflicted with this total, CHA district staff perceived no current noting that, “for 18 CDCs, we have one problems but noted there were many diffi- engineer in addition to 23 field and support ANNEX A4: culties at the beginning of the implementa- staff. The Director estimated that they BALKH PROVINCE tion, especially during the elections of the assigned “one social organizer to 12 CDCs,

179 who would cover two CDCs each day and all mine clearance/awareness.” (CHA District 12 CDCs each 6-day working week.” Staff, 27 October 2005). Nevertheless, he admitted candidly that “we, like all FPs, have problems” (UN- Training HABITAT Provincial Director, 1 November CHA and UN-HABITAT district staff listed 2005). training/workshops on the Operational Manual, proposal writing, monitoring, CHA provided the following description of book-keeping, finance, human rights, the main project skills needed: children’s rights, mine awareness, community development and the rule of Social Organizer: community law/constitution. The staff felt that all had a development, working with the good impact and effect (CHA District Staff, community, knowledge about the 27 October 2005; CHA District Staff, 8 5 phases of the NSP and the culture November 2005; and UN-HABITAT District of the community. Staff, 10 November 2005). As an example, a Senior Engineer: to check the proposal social mobilizer for UN-HABITAT explained and the NSP programme methods. how he was trained to gain proper access to Engineer: knows about the NSP, a village for the first time: engineering issues and construction. District Officer: to know all about First, we contact the district head and the NSP, management, finance, ask them to invite the village leader to administration, and methodology of a meeting in the district office to establishing elections. explain the NSP and our aims. Monitor: the approach to monitoring, If necessary, we will also move down proposal writing, feedback, relations the line of authority to find other key between the district office and the persons to secure permission. district government. When we enter, we visit the elders Community Development Officer: at a small meeting and then we how to develop the community, get a have a community-wide gathering full picture of the community and check (UN-HABITAT District Staff, the community proposal. 10 November 2005) NSP Manager: full responsibility, knows about all the programmes, the methodology of NSP, relations between 5.5 Project relevance the OC and the office and how to resolve problems. Nature of the projects25 Office Manager: to manage and assist Markaz-e-Dawlatabad, Dawlatabad the NSP Manager (CHA District Staff, District, (Type 1 Community) a school 27 October 2005). (social infrastructure), and engaged in Phase 3 (implementation of project) UN-HABITAT provided a similar overview, of the NSP; noting orientation training, how to mobilize Choba Temorak Karni Khail, the community, how to select the CDCs and Charbolak District, (Type 2 Community) prepare the elections, CDP training, project ACKUcommunity centre (social management, evaluation, implementation, infrastructure); procurement and accounting (UN-HABITAT Taimorak, Charbolak District, (Type 3 District Staff, 10 November 2005). Community) non-participating NSP; Yakhdan, Dawlatabad District, (Type 1 All but one of the groups of the two FPs Community) small bridges and aqueduct thought there were no skills shortfalls (CHA system completed, and electricity District Team, 31 October 2005; CHA system ongoing (social infrastructure District Staff, 8 November 2005; UN- and services); 25 The nature of the projects, HABITAT District Staff, 10 November 2005). Alichopan, Dehdadi District, (Type 2 if quantity was prioritized over CHA staff in one district thought their Community) water supply, deep well quality, and the opportunities “relevant skills were weak at the start of the (services); and for capacity-building and NSP”. While this gradually improved, they Aliseena, Nahrishahy District, (Type 2 empowerment, are still desired more skills training, “for Community) probably water supply, detailed in Section 1.6. example, in community development moni- deep well (services) (CHA District toring and methodology”. In particular, the Teams, 27 October 2005; 31 October staff suggested that “social organizers need 2005; 8 November 2005; and UN- THE PROVINCIAL more training about women’s rights and HABITAT District Staff, 10 November FIELD SURVEY REPORTS 2005).

180 Approach to identifying the the water supply projects (CHA District projects as community priorities Staff, 27 October 2005; CHA District Team, In Markaz-e-Dawlatabad, CHA recalled that 31 October 2005; CHA District Staff, 8 the community originally wanted a November 2005; and UN-HABITAT District generator for electricity but the people Staff, 10 November 2005). realized they could not raise the additional US $40,000 to meet the US $100,000 total All the district staff for both FPs admitted it costs (Dawlatabad is the size of a small town was likely that the projects would pull although it is classified as a village). people in from outside the community – Although there was already a school in the new residents and/or returnees (CHA community, the people opted for an addi- District Team, 31 October 2005; and CHA tional school as their second priority District Staff, 27 October 2005). For because there was need for more space. Yakhdan, CHA acknowledged the electricity The present school had only 16 classrooms. “will have high impact, the people will be Nevertheless, the new school would only more civilized and since most left their have 8 classrooms, which meant “the houses originally because there was no elec- number of rooms was still an issue” (CHA tricity, they will come back.” (CHA District District Team, 31 October 2005). Staff, 8 November 2005). UN-HABITAT furthered this point, raising two interlinked In Choba Temorak Karni Khail, CHA noted barriers, “No one can prevent people from that their first task was consulting the CDC coming in and we have received no and to encourage them to prioritise the guidance, although we have already told the needs of the community. The people then MRRD and the World Bank, and donors gave their input on the list and the CDC know about it.” Furthermore, strains could made the final decision: “[t]he people sat emerge since the project budget was based and thought, ‘we have a school and road but on the original community profile and there we need a community centre’. The were no provisions for re-adjustment (UN- Technical Engineer estimated the cost and HABITAT District Staff, 10 November 2005). detailed a budget.” (CHA District Staff, 27 The respondents could not suggest possible October 2005). In Yakdan, similar processes solutions based on the strict guidelines of of consultation were noted (CHA District the NSP. For example, it may be possible to Staff, 8 November 2005). ensure that water supply is restricted to the original beneficiaries by piping the water For Aliseena, UN-HABITAT described the into their homes. However, this option first phase as “identifying the priorities of would be very expensive to construct and the communities, categorizing the maintain (UN-HABITAT District Staff, 10 problems, and deciding which projects can November 2005). be done.” Unlike Markaz-e-Dawlatabad, Aliseena were able to choose their first Attempts to be inclusive priority, followed by a school and then elec- The school in Markaz-e-Dawlatabad could tricity. The district staff recalled that, “as not be completely inclusive because there soon as the community reached their con- were only 8 classrooms to accommodate clusion, we had a large gathering and some the children of more than 1000 families. problemsACKU were raised by CDC members Poor roads would also have hampered concerning the identification of their priori- access for those on the outskirts (CHA ties.” In Alichopan, the people rejected the District Team, 31 October 2005). Conversely, CDC’s original proposal and asked for water the community centre in Choba Temorak supply instead (UN-HABITAT District Staff, Karni Khail, the bridges and electricity 10 November 2005). project in Yakhdan, and Aliseena’s and Alichopan’s water supply projects, had the Estimating immediate beneficiaries potential to be inclusive (CHA District Staff, and the wider impact 27 October 2005; and CHA District Staff, 8 It was estimated that 16 villages would use November 2005). the school in Markaz-e-Dawlatabad; 900 people to use the community centre in In terms of gender equality, the NSP clearly Choba Temorak Karni Khail; all 218 families promoted men’s and women’s CDCs, and benefited from the bridges and aqueducts both FPs had encouraged women’s CDCs and expected to receive electricity in from the start. However, as detailed below, Yakhdan; and it was hoped that all the actual power and influence in the project ANNEX A4: residents in Alichopan (306 families) and process was typically limited to the men. BALKH PROVINCE Aliseena (426 families) would benefit from There were two approaches to this

181 imbalance: mixing or continuing the segre- 5.6 Project sustainability gation of the CDCs. For the former, CHA was optimistic that CDCs would merge in Measures to maintain the project the future, but assured the researchers that For each project, the approach to cost man- this was completely impossible at the start agement was the community savings box of the NSP and for villages initially. Instead, (thereby furthering the original contribu- the FP’s approach was to start small and tion of 10 per cent) and having the appro- encourage integration. Staff believed there priate oversight or observation commit- was the potential for more (CHA tees/sector groups, which were encouraged Management Team, 8 November 2005). and trained from the start. For example, the Markaz-e-Dawlatabad CDC also planned to Assessment of political, economic, manage the supervision and costs of the sociological and technological factors school with the Department of Education The non-budgetary reason for choosing the (CHA District Team, 31 October 2005; CHA school in Dawlatabad was the lack of access District Staff, 27 October 2005; CHA District to proper schooling outside of the home Staff, 8 November 2005; and CHA and mosque (CHA District Team, 31 Management Team, 8 November 2005). In October 2005). Before proposing the centre Mazar, UN-HABITAT hoped that a member in Choba Temorak Karni Khail, the of the community would be in charge of community valued a tangible presence of maintaining the equipment for the wells the government (CHA District Staff, 27 once they were trained by the Water Supply October 2005). In Yakhdan, it was believed Department. Nevertheless, the respondents that the projects would increase people’s admitted that the people taking responsibil- general awareness and improve basic access ity was the crucial point. (CHA District Staff, 8 November 2005). It seems likely that a person(s) can be Controlling the quality of appointed to take charge of, for example, a construction on site well so they can arrange for a mechanic to The construction of the school in Markaz-e- come and repair a broken part when Dawlatabad had reached a mid-way point. necessary. However, the more significant CHA noted that they had “technical concern was the community’s ability to monitors, engineers and a monitoring team have the budget to pay the mechanic and (members of the CDC) to check the quality for the parts each time the well breaks. UN- and management of the project during HABITAT estimated that it could cost US weekly visits.” (CHA District Team, 31 $300 dollars a year to maintain a well, espe- October 2005). cially when this resource is used frequently by many families. Therefore, it seemed The researchers were assured that the con- unlikely that the community saving box was struction of the community centre in Choba sufficient to cover all the maintenance costs, Temorak Karni Khail would enjoy similar especially when there were no planned checks, in addition to the support and economic activities connected to the interest of the people (CHA District Staff, 27 projects researched (UN-HABITAT District October 2005). Yakhdan also had two moni- Staff, 10 November 2005). toring teams consisting of CHA staff (techni- ACKU cian and evaluator) and the community There was no evidence of plans to further (engineer and foreman) (CHA District Staff, the technical skills for maintenance staff. 8 November 2005). UN-HABITAT stated the Apart from the example of the school, there projects in Aliseena and Alichopan would were no other examples of coordination have “three sub-committees for procure- with the other ministries and it was unclear ment, finances and monitoring”. Monitoring if there were the required professional staff would be supplemented by the OC, MRRD to run the services in the long-term (CHA and UN-HABITAT, but the researchers raised District Team, 31 October 2005; CHA the weakness in the M&E capacity of the District Staff, 27 October 2005; CHA District MRRD. The respondents argued that this Staff, 8 November 2005; and UN-HABITAT capacity had improved but accepted the District Staff, 10 November 2005). limitation overall and added that probably “the best way was for the people to Furthermore, 4 of the communities had no monitor”. (UN-HABITAT District Staff, 10 plans to ensure that the projects would be November 2005). functioning in 10 years’ time apart from ‘hope and enthusiasm’ (CHA District Team, THE PROVINCIAL 31 October 2005; and CHA District Staff, 27 FIELD SURVEY REPORTS

182 October 2005). Yakhdan was the exception the first instalment was spent. Construction and there was some attempt to make the had stopped as the CDC had been waiting electricity system sustainable: three months (at the time of research) for the second instalment. The MRRD in Kabul Now each house is using 300 W were initially blamed for this delay but it electricity and this provides 3 light then transpired that CHA had made an bulbs/lights. They will pay Afs 80–120 administrative error, which apparently had per month as a bill to the CDC, been recently corrected (CHA District Team, and then they will calculate after 31 October 2005). 5 years if they will be able to buy another generator of a similar standard. For the community centre in Choba (CHA District Staff, 8 November 2005) Temorak Karni Khail, the CHA optimistically anticipated a further period of six months Nevertheless, none of the projects had iden- until completion but appreciated that there tifiable direct economic activities (CHA could be delays in receiving the instalments District Team, 31 October 2005; UN- (CHA District Staff, 27 October 2005). HABITAT District Staff, 10 November 2005; and CHA District Staff, 8 November 2005). Completion of the electricity project in For example, in explaining the rationale for Yakhdan was expected to take five months the community centre in Choba Temorak from identification to completion. However, Karni Khail, CHA district staff only “hoped the district staff anticipated a delay in the to have a small library and resource centre” second instalment and hoped it would and that it “would be a space for people to arrive between 1-30 December (CHA gather and could be sustainable by District Staff, 8 November 2005). providing a place for donors to come and meet” (CHA District Staff, 27 October 2005). It was too soon for UN-HABITAT to predict In Yakhdan, the link between electricity and the timeframe of the water supply projects handicrafts or weaving was tentative if not in Aliseena and Alichopan. an afterthought (CHA District Staff, 8 November 2005). Also, in Aliseena and CHA and UN-HABITAT believed the delays Alichopan, the water supply would have were decreasing but still remained a barrier limited economic impact since there were (CHA District Team, 31 October 2005; CHA no farmers (UN-HABITAT District Staff, 10 District Staff, 27 October 2005; and CHA November 2005). District Staff, 8 November 2005). It was recommended that 100 per cent of the funds As outlined in the NSP, one approach should be transferred once the project is towards sustainability was for the CDCs to approved (CHA District Staff, 8 November apply to donors for small projects. However, 2005). the CHA had only facilitated three so far. The Markaz-e-Dawlatabad CDC had sent a Ensuring appropriate design proposal to JICA for a US $12,000 poultry and construction of the projects project, and two other communities in First, the school in Dawlatabad was built Chimental were being processed (CHA strategically at the centre of the community. ManagementACKU Team, 8 November 2005). UN- Second, technical engineers were hired to HABITAT claimed to have integrated this complete the design. This was “approved by approach more with their recent CDCs, Kabul and is based on normal standards based on their experience with the CFDO although we also have a Safety Standards and in response to the delays in the NSP Theory”. The Department of Public Health grants (UN-HABITAT Provincial Director, 1 also issued a code. Following this, the November 2005). relevant CDC subcommittees discussed the need for skilled labour and then found skilled labourers, foremen and extra 5.7 Project efficiency monitors within the community. They had purchased the materials from the local Time from identification to market (CHA District Team, 31 October implementation and reasons for delays 2005). For the school in Dawlatabad, there were nine months between identification of the Despite the efforts of the community and all project and the start of implementation. the NSP actors, the construction of the ANNEX A4: Implementation started on 24 April 2005 (6 school was flawed; in particular, there was BALKH PROVINCE months ago at the time of the research) and insufficient mortar used between the bricks

183 and the structures of the three buildings had not been strengthened (see Figures 4, 5 and 6 below). However, it was unclear if this was the result of poor construction or the effect of the CDC trying to save money in anticipation of the delay. Regardless of blame and the delays (past and future), it was certain that the construction would not be able to continue until after winter (CHA District Staff, 8 November 2005).

Pre-construction, for the community centre in Choba Temorak Karni Khail, the CHA district staff could only refer to “having our own engineering standards and public health norms and standards”. While CHA had already found skilled labour, they were trying to find more from the community and to give them cost-effective training. The community also planned to utilise the procurement subcommittee to purchase the materials locally. The community and CHA believed it was unnecessary to consider mitigation/defensive measures against natural disasters as there were no previous similar disasters in this area (CHA District Staff, 27 October 2005).

In Yakhdan, the community worked with the CHA and the Department of Public Health to design the 13 bridges and aqueducts. It was claimed that the relevant government standard was used and that technical experts from the OC and the MRRD had input on site. It was also stressed that CHA had designed the aqueducts and assessed the natural supply of water. There was a monitoring schedule (for quality and quantity) for both, organized by the OC and the NSP. The procurement committee within the CDC purchased the material and hired the engineers. The community and CHA also believed mitigation/defensive measures against natural disasters were ACKU relevant (CHA District Staff, 8 November 2005).

It was too early to ask or adapt the engineering-related questions to the water supply projects in Aliseena and Alichopan. However, UN-HABITAT stated that they provided training for natural disaster management (CHA District Team, 31 October 2005).

The extensive interviews with three levels of Markaz-e-Dawlatabad school the FPs clearly uncovered a range of salient design and operational issues. Several Figure 4: Inside positive features were noted, including a Figure 5: Close-up clear understanding of their role and THE PROVINCIAL function with the NSP, a resultant increase in Figure 6: The front FIELD SURVEY REPORTS

184 capacity, and instances of co-operation with obstacles. This CDC and Aliseena’s also did the OC and DRRD. However, the most fun- not have a meeting place. All but one of the damental weakness was the projects. This CDCs praised their relationship with the included widespread inefficient implemen- government. Alichopan expected a good tation, and instances of poor design. relationship but complained that the Moreover, it was concluded overwhelmingly Governor had manipulated the selection of that the relevant actors had not envisaged NSP villages. The women’s CDCs in Markaz- the sustainability of the projects.26 e-Dawlatabad and Choba Temorak Karni Khail yearned for direct contact with the government. All the CDCs were aware of the official NSP complaints procedure. 6. The CDCs All the CDCs valued (and Aliseena expected This section first presents a general profile to) their relationship with the FP and for each of the five communities participat- emphasized the usefulness of the training. ing in the NSP in Balkh. Markaz-e- However, the women’s CDCs in Markaz-e- Dawlatabad, Choba Temorak Karni Khail Dawlatabad and Choba Temorak Karni Khail and Alichopan were multi-ethnic communi- considered the training insufficient to their ties compared to the predominately Arab needs. The bridges/aqueduct project in Yakhdan and Aliseena, which was mainly Yakhdan displayed notable engineering Hazara. All the communities were clearly design and implementation strengths. deeply affected by the war, with poverty and displacement as two recurring characteristics. Yakhdan was the most advanced in 6.1 Overview of the communities terms of project implementation while and their CDCs Aliseena was the newest NSP member. Markaz-e-Dawlatabad, Choba Temorak Karni General community profile Khail and Alichopan encountered significant Markaz-e-Dawlatabad was 50 km north of challenges: disproportionate budget to Mazar (1.5 hours by car). The multi-ethnic actual number of beneficiaries; not enough community of 1688 families consisted of families/budget to allow main needs to be mainly Tajik with some Pashtun, Turkman, prioritised; and delays in instalments, Uzbek, Hazara, Baducch and Arab ethnic respectively. Nevertheless, all the CDCs groups. Livelihoods depended on farming, affirmed that the NSP had created (or at teaching and an assortment of daily wage least expected it to) positive changes to work. CHA asserted that the war had a sig- community governance. Two concerns were nificant impact on the community. In partic- 26 CHA management staff were noted by two of the women’s CDCs: ular, inter-ethnic fighting had left deep psy- obviously aware of the Provincial unelected persons were still dominant in chological scars and livelihoods were Reconstruction Teams (PRTs) Markaz-e-Dawlatabad; and in Alichopan, the fractured. Consequently, all the families but stated there was no impact women’s CDC preferred not to integrate were described as poor, with 353 widows, on the NSP, CDCs etc. The with the men’s. 128 IDP families, and 209 disabled persons. respondent recognized that There were 7–8 members in each international staff in Afghanistan Overall, the CDCs functioned well in household. The district head of the police, typically admired the PRTs but relationACKU to the whole community, which the head of the district government and the he found that in his experience they attributed to the work of the FPs. The traditional shura were named as the only the communities became CDCs claimed the elections were fair and other influential figures apart from the CDC unsettled by the focus on well supported, which was complemented members. The age of adulthood was 18 security (CHA Management by the identification of community needs years for men and 14 years for women Team, 8 November 2005). based on consensus (within CDC and the (Markaz-e-Dawlatabad Men’s and Women’s The OC added that the PRTs community). All had the relevant documen- CDCs, 31 October 2005; and CHA District had an impact on security but tation based on their stage within the NSP. Team, 31 October 2005). there was no coordination However, the women’s CDC in Choba with the CDCs or NSP. It was Temorak Karni Khail stated that it did not Choba Temorak Karni Khail was 54 km west appreciated that the PRTs were have access to the documents. Sub-commit- of Mazar (40 minutes by car on the main in close contact with the CDCs tees all appeared to be in place. Although road from Mazar, followed by a further 10 in other provinces (OC and the communities could identify important minutes off-road driving). The community Te am, 9 November 2005). benefits from the projects, there were insuf- of 126 families consisted of mainly Pashtun, ficient plans for maintenance, and with some Tajik and Arab ethnic groups. economic activities were mainly not consid- Their livelihoods depended on trying to ANNEX A4: ered. The women’s CDC in Alichopan was grow wheat but there had been drought for BALKH PROVINCE an exception but had encountered major two years. None of the families were rich

185 and the majority were described as poor, widows and disabled. Fifty per cent were with some of middle income. Most of the returnees and IDPs. The shura and the households (between 4-15 family members women’s CDC were described as the only in one compound) had several dependents influential people (Aliseena CDC, 10 – widows, elderly and/or sick. Many of the November 2005). families had been displaced during the war. Only the CDC members were identified as Basic NSP related information influential figures. However, the wife of the In Markaz-e-Dawlatabad, there were 15 CDC head was also head of the female members each on the men’s and women’s shura, and the deputy of the female CDC CDCs. Both were formed two years prior was wife of the traditional shura head, and and met once a month. There were 1688 these connections could have easily influ- families but they would receive the enced/restricted the women’s CDC. maximum budget of US $60,000, which was for 300 families in theory (Markaz-e- The researchers observed some larger and Dawlatabad Men’s and Women’s CDCs, 31 better-built homes in the centre of the October 2005). community – spacious, two levels, glass windows, and some had one or more In Choba Temorak Karni Khail, there were tractors. The owner of the largest house was 15 members each on the men’s and the uncle of the CDC leader. The age of women’s CDCs. They had been established adulthood was 14 years for women and 18 three to four months prior and met once a years for men. Fifty per cent of the adults week. Although there were several wells, were literate. An estimated 40 per cent par- the quality of the water was described as ticipated in the CDC elections winter “poor, salty and unpredictable in supply”. (Choba Temorak Karni Khail Men’s and The CDC wanted a new well but the budget Women’s CDCs, 27 October 2005; and CHA allocated was too small because there were District Staff, 27 October 2005). only 126 families. Instead, the community opted for a community centre (US Yakhdan (2500 jarebs) was 50 km north of $25,200/Afs 1,260,000 allocated) and the Mazar (1.5 hours by car), 6 km (15 minutes pre-construction site measured 56 m x 65 by car) from Markaz-e-Dawlatabad. Of the m. There were 200 school children (first, 218 families, Arab was the main ethnic second and third years), who could use a group, with some Pashtun and Uzbek. Their school (5 km away) outside of winter livelihoods depended on manual labour. (Choba Temorak Karni Khail Men’s and Most of the families were described as poor, Women’s CDCs, 27 October 2005; and CHA with some of middle class. There were 3–4 District Staff, 27 October 2005). persons in each family; many had disabled and/or widows and there were 80 displaced In Yakhdan, there were 11 men and one families. Named influential figures included woman on the CDC and they met regularly. the head of the district, the elders and the The CDC had submitted two sub-project CDCs. The age of adulthood was 17 years proposals, with one completed and one (Yakhdan CDC, 7 November 2005). under construction (Yakhdan CDC, 7 November 2005). Alichopan was located 5 km from Mazar. Of ACKU 306 families, the main ethnic group was In Alichopan, there were 6 members on the Hazara with some Sayed and Pashtun. The women’s CDC and they met regularly. The people worked as labourers or shop CDC had been waiting for their first instal- keepers. Most were described as poor. ment for 3 months, and had become frus- There were 2–3 families in each compound trated as they had started to lose the trust and the CDC identified 37 widows as heads and faith of the community (Alichopan of households, 7 disabled, and most of the CDC, 10 November 2005). community were returnees. Influential figures consisted of the elders of the In Aliseena, there were nine members of the community (Alichopan CDC, 10 November men’s CDC, as a representative was elected 2005). from each of the nine neighbourhoods. The CDC had held many meetings together and Aliseena was located in the suburbs of with the FP, even though the CDC was Mazar. The community of 425 families/2500 created three months prior. They intended persons was all Hazara, worked mainly as to apply for a water supply project. It was labourers, and were poor. Typically, 3-4 noted that there had been no assistance, THE PROVINCIAL families lived together and there were many not even for the IDPs and returnees FIELD SURVEY REPORTS (Aliseena CDC, 10 November 2005).

186 6.2 Legitimacy and difficult to sit with the men. Also, if we sit acceptance of the CDC with the men then they are superior and we would have no voice in the decision- Community governance and leaders making. For now, it is better to work In Markaz-e-Dawlatabad, the men’s CDC separate.” (Alichopan CDC, 10 November stated that the traditional shura and the 2005). head of the district governed the community. For the women’s CDC, the In Aliseena, the CDC was described as the community was governed by influential leaders. They heard about the NSP from figures, in particular, the district head of the other neighbourhoods and then asked to police. Both CDCs described how the FP join. The CDCs were the only other introduced the NSP. Both CDCs identified community committees. Significant changes the traditional shura as the only other in community governance by the CDC were community committee. Both CDCs thought noted. It was also thought that it comple- they had changed the way the community mented other forms of community gover- was governed and complemented other nance. It was claimed that over 50 per cent forms of governance through co-ordination voted in the election (Aliseena CDC, 10 (Markaz-e-Dawlatabad Men’s and Women’s November 2005). CDCs, 31 October 2005).

In Choba Temorak Karni Khail, both CDCs 6.3 Functioning of the CDC in stated that the traditional shura governed relation to the whole community the community. The men’s CDC was introduced to the NSP through information from General other villages while the women’s CDC In Markaz-e-Dawlatabad, the men’s CDC described how the FP arrived and met to plan how to “rehabilitate the village conducted the needs assessment. Both and the district, and advised the role of the CDCs identified the traditional shura as the NGOs”. The women’s CDC met to “advise only other community committee. Both on and solve women’s problems”. Both CDCs considered their work to have CDCs stated that the election of the 15 changed community governance, with members on each CDC was based on secret several examples of conflict resolution. voting and that some were elected from the Accordingly they believed the CDCs to have traditional shura. All the relevant documen- complemented other forms of community tation (for example, minutes, procurement governance through coordination and the forms, and observations) was checked by creation of better relations (Choba Temorak the researchers, and the CDCs knew these Karni Khail Men’s and Women’s CDCs, 27 tasks belonged to the secretary. Their first October 2005). priority was a generator but it was too expensive so they decided on the school. In Yakhdan, the CDC described themselves The men’s CDC had sub-committees for as the leaders, since the traditional shura buying the material and for monitoring. The disbanded when the NSP started. The FP women’s CDC stated that the school was a introduced the NSP to the community. The prime need and it was important that boys CDCs wereACKU the only other community com- and girls could benefit from the project mittees. The CDC felt they had improved (Markaz-e-Dawlatabad Men’s and Women’s community governance by making their CDCs, 31 October 2005). objectives clear and involving the community in the decision-making process In Choba Temorak Karni Khail, the men’s (Yakhdan CDC, 7 November 2005). CDC aimed to “improve the relationship between the community and the govern- In Alichopan, the CDC was described as the ment and work on sub-project proposals”. leaders. The community had a network with The latter consisted of reconstructing the UN-HABITAT in the past and that is how road, establishing a tailoring course for they discovered the NSP. The CDCs were women and then the building of a school. the only other community committees. The They met once a week and their main CDC did not perceive a major change in responsibilities were to set an agenda, share community governance but thought it out the tasks, discuss the announcements would complement other forms of from the district level and decide how to community governance in the future. The resolve problems with the government. The ANNEX A4: Alichopan women’s CDC did not want to women’s CDC defined their main function BALKH PROVINCE mix with the men’s CDC “as it would be very as holding weekly meetings to discuss and

187 advise on important issues within the For the Alichopan CDC, the main obstacle community. Both CDCs agreed that they was not having a place for meetings and to had been elected based on secret voting keep documents. The 6 CDC members three months prior. The men’s CDC stated stated that they were elected based on a that 70 per cent of the community voted. All secret vote. The CDC had all the relevant the relevant documentation (for example, forms and the official certificate etc. They minutes, procurement forms, observations) approached the community first to discuss for both CDCs was checked by the and prioritise needs since they had received researchers. Financial forms relating to the the relevant technical training, and encour- CDP were not filled out as the project had aged the people to vote (Alichopan CDC, 10 not yet started. The women’s CDC claimed November 2005). not to have (access to) the documentation.27 The men’s CDC stated that they had In Aliseena, the CDC conducted regular discussed the needs of the community and meetings and spent 20 days preparing for decided on a community centre during a the CDC elections. Unfortunately, they did meeting. They thought it would be useful not have a CDC building for meetings and for doctors and NGOs, while providing a used the house of one of the members. communal meeting place for the Secret voting was also used and the community. The women’s CDC agreed but community was instructed that anyone also stated that they could not afford their could nominate themselves. The recently first choice of a school (Choba Temorak created CDC had not yet received all the Karni Khail Men’s and Women’s CDCs, 27 forms and documentation and members October 2005). The DRRD staff thought the were finding them difficult to understand. community centre was “appropriate to the They believed that it was the responsibility needs of the community and a good idea of the whole community to prioritise their from a social point of view because the needs, and noted that a well was needed community could hold gatherings. Now, (Aliseena CDC, 10 November 2005). there is no such hall or room so it is a way to be more civilized.” (District DRRD staff, 9 Implementation of project/s November 2005). In Markaz-e-Dawlatabad, the CDCs agreed that the FP was able to facilitate the In Yakhdan, the CDC met regularly to community’s request(s). They did not face discuss and plan the sub-project proposals. disagreements within the CDC or with other The CDC stated that secret voting was used community groups concerning the imple- in the election, which took place in the mentation of the project. To this end, the mosque. It was claimed that 400 people community contributed 12 per cent of the voted. The CDC had all the relevant docu- costs and provided physical assistance. The mentation and the secretary kept the two CDCs also conferred on the best 27 The leader produced the relevant records. Using the same approach approach to implementation. The men’s following forms: Objective and to deciding the bridges and aqueducts CDC recalled that 4 families who disagreed Goals of the NSP, Long and project, the CDC members recalled that with the project were invited to the school Short-term goals, Rules and they held a community meeting and finally during the implementation to view the Regulations of the NSP, decided on a generator/electricity project. progress. In terms of benefits, both CDCs Constitution of the CDC, They had found it difficult to find paid ACKUhoped the children of the community Job Responsibility of the CDC, skilled labour and needed to hire from would have definite access to education. Procurement Policy and Manual, outside the village. This had caused delays, The main long-term benefit was the Manual of Children’s Copy of especially during Ramadan (Yakhdan CDC, 7 education of the next generation. The CDCs Subcontractors forms, Quotation November 2005). They had received two referred to the community savings box (for forms, Purchasing form, Building instalments for the generator (Afs 572,390 repairs) and the possible employment of form, Evaluation of the CDC and Afs 228,956) (OC and Team, 9 locals as teachers, as the main arrangements form, Manual for Microfinance, November 2005). They stated that there for maintaining the school. The quality and Leisure Books, Cash Book, were no major disagreements from the quantity of the construction was monitored Finance Summary sheet, community. However, they had originally by the CDC members regularly. The men’s Advance form, Bank Deposit planned to build a school but were discour- CDC discussed their plans to install electric- form, Financial Expenditure form, aged by the requirement for the Ministry of ity and to continue consulting with the NSP. Committee Account form, Education’s approval. They managed to save The women’s CDC wanted to have direct Received form, and Recording money from the bridge project by getting contact with the donors (Markaz-e- forms. high quality material at a low price and built Dawlatabad Men’s and Women’s CDCs, 31 two wells with this money (Yakhdan CDC, 7 October 2005). The CDCs had spent half of November 2005). the NSP money (Afs 2,979,428, then Afs THE PROVINCIAL 1,489,762 on 2 April 2005). The DRRD had FIELD SURVEY REPORTS

188 not visited the school but the OC and team sion for news and leisure. No direct had made at least one site inspection economic activity was attributed to either (District DRRD staff, 9 November 2005; and project. The main potential long-term OC and Team, 9 November 2005). benefit was a better standard of living. The CDC referred to the community savings box In Choba Temorak Karni Khail, the CDCs for repairs and employing locals (as guards agreed that the FP was able to facilitate the and engineers) as the main arrangements community’s request(s) by always “consult- for maintaining the community centre. It ing and advising when asked”. They did not was also proposed that each family could expect to face disagreements within the have their own electricity metre. Informants CDC or with other community groups con- claimed that a group of evaluators and cerning the implementation of the project. monitors played a key role in choosing and Both CDCs were optimistic and motivated criticizing the projects, especially for the about the implementation, and planned to bridges. They reported to the CDC from the focus on the selection of builders and the beginning and especially checked the quality of the monitoring. The CDCs had quality of the materials, for example, the not faced opposition from within the cement etc. The CDC was working on a community. In terms of benefits, the men’s carpet-weaving project and animal CDC valued the project as a communal husbandry. It also resolved a serious conflict meeting place, which could also be used to between two brothers in early 2005 house a library, resource centre and perhaps (Yakhdan CDC, 7 November 2005). a day care centre. The women’s CDC linked it directly to empowerment. No direct In Alichopan, the CDC agreed that the FP economic activity was attributed but there was able to facilitate the community’s was limited potential. The main potential request(s) but admitted that it had “difficult long-term benefits were an improved tasks to fulfil”. They did not face disagree- standard of living and empowerment. ments within the CDC or with other community groups concerning the imple- The CDCs referred to the community mentation of the project. The community savings box for repairs and establishing planned to contribute 10 per cent and help linkages outside the community as the main dig the wells. They expected to benefit from arrangements for maintaining the clean drinking water. No economic activity community centre. It was planned that the was attributed apart from those involved in community would monitor the implementa- the construction. The main potential long- tion of the project. Both CDCs wanted to term benefit was a better standard of living. implement more projects and to try The CDC did not know how to maintain the focussing on a school with assistance from project and admitted the community the Department of Education (Choba savings box might be inadequate for repairs. Temorak Karni Khail Men’s and Women’s However, they hoped the people would act CDCs, 27 October 2005). responsibly when using the wells, and planned to apply for small grants once they In Yahkdan, the CDC agreed that the FP was the capacity and skills. There was a moni- able to facilitate the community’s toring sub-committee for the project. The request(s).ACKU They did not face disagreements group’s main recommendation was “that within the CDC or with other community instalments should be on time”. Despite the groups concerning the implementation of challenges, the women’s CDC desperately the project, except one issue, which was wanted “job opportunities”, and had started resolved through discussion. The by planning a project for embroidery. They community contributed 10 per cent of the showed the research team a sample of costs and “were very enthusiastic to partici- embroidery and stated that they wanted to pate”. The FP was also involved by giving sell it but found there was no market instructions in terms of capacity-building, because they were being undercut by bringing staff, and by finding an engineer in Chinese imports. Instead, they planned to the village. The CDC got involved in the sell lace work but needed “money for raw procurement of materials and the monitor- material and machines”. In addition, they ing. In terms of benefits, the bridges project had tried to establish a mathematics course had improved general access in the for girls but were without budget, and community and to the outside, which was managed by charging people a small fee important for commerce and medical emer- (Alichopan CDC, 10 November 2005). ANNEX A4: gencies. The electricity project would also BALKH PROVINCE allow the people to access radio and televi- In Aliseena, the CDC hoped that the FP

189 would facilitate the community’s request(s). In Alichopan, the CDC had been introduced They did not expect to face disagreements to the District Head and government within the CDC or with other community departments and felt they could contact groups concerning the implementation of them when necessary. The CDC thought the the project because of the complete partnership was good. The group had a support. The CDC planned to find qualified copy of the NSP Operational Manual but engineers and to control the quality of the did not know about the complaints work. It expected to benefit from clean procedure (Alichopan CDC, 10 November drinking water but there was no economic 2005). activity attributed. The main potential long- term benefit was a better standard of living. The CDC in Aliseena had not been intro- The CDC had not planned for maintenance duced officially to the government but but expected to discuss it with the expected the partnership to be good once community and to focus on applying to the they registered. The CDC had not yet government and donors for small grants. received information on the complaints Monitoring had not been planned at the procedure. However, the community group time of the research (Aliseena CDC, 10 was concerned that more than 300 families November 2005). would use the wells. Furthermore, they complained that the Provincial Governor was pushing for another village to have a 6.4 Relationship between CDC even though it had no families. It was the CDC and government claimed that this was an attempt by the In Markaz-e-Dawlatabad, the men’s CDC Governor to encourage people to return. At claimed to have “very good” relations with the centre of these two issues was the the district government but the women’s complaint that the government did “not CDC had not been in recent contact. Both want to focus on Hazaras, whether inside or CDCs thought the partnership was good. outside Mazar”. The CDC claimed that the Nevertheless, the women’s CDC wanted target groups were limited to “Pashtun, more women to be part of the decision- Arab, Uzbek and Turkmen”. (Aliseena CDC, making system and to have direct contact. 10 November 2005). Both CDCs were aware of and had used the NSP complaints procedure (written and verbal), and had received feedback through 6.5 Relationship between meetings with the NSP and the FP (Markaz- the CDC and the FP e-Dawlatabad Men’s and Women’s CDCs, 31 In Markaz-e-Dawlatabad, both CDCs October 2005). thought the training was good but the women’s group felt it was insufficient. In Choba Temorak Karni Khail, both CDCs Additional support for the men’s CDC agreed they wanted to address and solve, or included meetings at the district level reduce, the problems first before visiting among all the CDCs, which was a good the government offices. Both CDCs thought opportunity to share information and the partnership was good. The men’s CDC transfer knowledge. The main problem was thought it was their responsibility to the delay of the second instalment by 3 improve the partnership while the women’s ACKUmonths (at the time of research). It was CDC wanted direct contact. Both CDCs expected that this would affect the quality of knew about the complaints procedure but the work directly, and then indirectly since had not used it (Choba Temorak Karni Khail winter was fast approaching, which would Men’s and Women’s CDCs, 27 October delay the work further. The women’s CDC 2005). was not aware of problems because it was prevented from managing the project In Yakhdan, the CDC had a coordinating (Markaz-e-Dawlatabad Men’s and Women’s meeting with the Head of District and CDCs, 31 October 2005). relevant government departments at the beginning of the NSP and reassured them In Choba Temorak Karni Khail, both CDCs they would solve any problems. The CDC valued the workshop training because it was thought the partnership was good, though empowering and informative. The women’s believed it could be improved through CDC had not received additional support more unity and coordination. The CDC was but then men were given satellite radios to aware of the complaints procedure but so listen and learn from weekly training pro- far the FP had managed all their problems grammes. One member was also being THE PROVINCIAL (Yakhdan CDC, 7 November 2005). trained in monitoring (Choba Temorak FIELD SURVEY REPORTS

190 Karni Khail Men’s and Women’s CDCs, 27 changed to 2.80 m. The size of the stones October 2005). also changed from 15 cm to 65 cm. The adjacent building/school was built by an In Yakhdan, the CDC valued the training on NGO, but it was claimed that there were human rights, conflict resolution and some construction problems since the foun- banking. The group claimed that help and dations were weak. support were always available (Yakhdan CDC, 7 November 2005). In Yakhdan, electricity poles were erected throughout the village and the CDCs had In Alichopan, the CDC thought the training purchased but not erected or installed the was useful in addressing problems and cables (see Figure 7). The 13 small bridges resolving conflict, and that these skills were seemed to be good structures, although transferable. No other support had been some had developed cracks (see Figures 8 provided (Alichopan CDC, 10 November and 9). The CDC and FP indicated that it 2005). took one week to build each bridge. The two aqueducts appeared to be well con- The Aliseena CDC had not yet received structed – solid and with deep foundations training but expected to work closely with – and were built by the CDC (see Figure 10). the FP’s Technical Engineer when writing There was a water divider between the two the CDP (Aliseena CDC, 10 November villages, which agreed to take the water on 2005). alternate weeks. Two rivers flowed into Yakhdan (see Figures 11 and 12).

6.6 Capacity of the CDC Therefore, as set out in the NSP Based on the above enquiries, the Operational Manual, the CDCs claimed to household surveys and the FP’s assessment, have been elected based on the guidelines, the men’s CDCs in Markaz-e-Dawlatabad, met regularly and had established sub-com- Choba Temorak Karni Khail and Alichopan mittees and a CDP for relevant sub-projects. can be classified as ‘able with difficulty’. It This demonstrated legitimacy and capacity was difficult to judge the women’s CDCs, as to plan and manage development projects they were clearly excluded from the that benefited the community. In sum, the decision-making processes. In comparison, CDCs had achieved a positive transforma- Yakhdan and Aliseena were ‘able’. tion of community governance (successfully

6.7 Engineering questions 28

Appropriate standards, Monitoring For Markaz-e-Dawlatabad and Yakhdan, please see sub-sections 5.5, 5.6, 5.7, 6.3, and 6.5 above.

Project leadership on site For Markaz-e-DawlatabadACKU and Yakhdan, the research team did not identify project leadership on site.

Skills in the community pre-project For Markaz-e-Dawlatabad and Yakhdan, please see sub-sections 5.3, 5.4, 6.1, 6.2, and 6.5.

Long-term budgeting and maintenance 28 These questions were not For Markaz-e-Dawlatabad and Yakhdan, applicable to Choba Temorak please see sub-sections 5.5 and 5.6, and 5.7. Karni Khail, Alichopan and Aliseena. Technical details of projects The school in Markaz-e-Dawlatabad was constructed to hold 8 classrooms, with two ANNEX A4: administration buildings in front. The BALKH PROVINCE height was originally 2.20 m, which was Figure 7: Electricity poles, Yakhdan

191 Figures 8 & 9: Small bridge, Yakhdan & Close-up

Figure 10: An aqueduct, Yakhdan

Figures 11 & 12: River dividers, Yakhdan

ACKU

THE PROVINCIAL FIELD SURVEY REPORTS

192 replacing or working in tandem with tradi- disabled. There were several sources of tional community governance) and livelihoods listed, including office and gov- displayed the potential to become genuine ernment work, teaching, basic labour, shop- partners with the government. However, keeping and farming. One household head budget constraints meant that the top- was a Mullah and another was a NGO priority in each community was not always worker. There was an even split in middle addressed. In particular, women’s CDCs income and poor households. Eight house- complained of a limited role. Moreover, holds were Tajik, with one Pashtun and one they were excluded from power and the Uzbek. decision-making process. Overall, the assessment of the CDCs questioned In Choba Temorak Karni Khail, the 10 whether it was right that community priori- households interviewed each consisted ties came before economic development. mainly of 2–3 men and 2–3 women. One had 8 men and 10 women, one had 10 men and 5 women, and another had one man and 12 women. There was an average of 7. Households with a CDC 15.4 children in each household. Two households had no dependents, and the This section demonstrates how the sampled rest had a mixture of widows, sick and/or households were representative of their elderly and one of these households was respective NSP community in terms of also displaced. Field labour and farming household composition: livelihoods; formed the most common sources of liveli- income level; and ethnicity. The profiles also hood. Four households defined themselves yield two main conclusions: each as middle income, with the other six classed community was deeply affected by the war as poor. Five households were Tajik, 4 were (although to varying degrees); and the Pashtun and one couple were of mixed majority of households perceived a post-war ethnicity. improvement in their lives. Overall, the households had a good grasp of their CDC’s In Yakhdan, the 10 households interviewed role (social, local governance and projects) consisted mainly of 4 men and 4 women and claimed sound awareness of the while one household had 7 men and 3 election process. Households also generally women. There was an average of 8.6 believed the CDCs were performing well, children in each household. Three house- had contributed (physically and financially) holds had no dependents and the others to the projects, and were aware of the main had a mixture of widows, sick and/or elderly. NSP actors and the need for applying for The members of one of these households funding outside the Programme. were also returnees. Similar to Markaz-e- Nevertheless, illiteracy and a lack of social Dawlatabad, there was a wide range of liveli- cohesion were two recurring barriers to hoods, consisting of farmers, labourers, a wider participation. This section closes with shop-keeper and a Mullah. Three houses four crucial and interlinked findings: half of were of middle income and the other 7 the households (approx.) in each were poor. Eight households were Arab and community perceived the NSP to be about two were Pashtun. governanceACKU and representation; all identified specific service-based projects as the Impact of the war and after key to improved lives; all believed their gov- In Markaz-e-Dawlatabad, only one house- ernment was interested; and all were opti- hold claimed not to have experienced mistic about the future. impact from the war. For the other 9 households, the most common (and often combined) effects were displacement, the 7.1 Household profiles destruction of homes and the killing of immediate family members. All but one Basic data household asserted that their lives had In Markaz-e-Dawlatabad, the 10 households improved since the war ended, especially in interviewed each consisted mainly of two terms of security, employment opportuni- men and two women. Some had 3–4 men ties and the freedom of women. and 3–4 women while one had 8 men and 7 women. There was an average of 13 In Choba Temorak Karni Khail, the most children in each household. Three house- common (and often combined) effects were ANNEX A4: holds had no dependents, one had a widow displacement, the destruction of homes and BALKH PROVINCE and the rest had a mixture of widows and/or the killing of immediate family members. As a respondent described:

193 Our village was close to the road so holds expected the two CDCs to gather we saw and heard rockets and bombs people together and address, advise and explode. One of my brothers died, solve the problems faced by the community. we lost two women during pregnancy Such problems involved providing services, and all the women were traumatized. including a school, and resolving conflict. We were not displaced. The majority of respondents knew the (Household Survey, 27 October 2005) CDCs had started 3 months before. Seven households knew the Election Commission Eight households argued there was an was chosen by secret voting/election, while improvement in their lives after the war, two did not know. Half (men and women) with several focussing on safety. Two house- the households voted. Before the CDC, holds agreed that security had eased, but village priorities were identified by the this alone was not sufficient in creating elders of the village (6 households), and 4 improvement in their lives. Other barriers households did not know. included drought and inadequate social services. In Yakhdan, respondents understood the CDC to bring people together, coordinate, In Yakhdan, the households were especially make decisions and provide electricity, the affected by the killing of family members bridges and other future projects. In sum: and displacement, for example: “Four “CDC is NSP and the NSP means projects” uncles and one brother killed and we were (Household Surveys, November 2005). displaced”, “One brother killed and we were There was slight variation in the respon- displaced to another province”, and “we lost dents’ knowledge of the CDC’s history. three members and were displaced to While most knew it had been one year, one several villages” (Household Surveys, 31 thought it was 3 months, while another October 2005). Seven households believed stated two years. All respondents knew the their lives had improved because security election commission was selected using was better, opportunities created, and infra- secret voting/election. Eight households structure improved. For example, a respon- (men and women) voted, one did not vote dent stated, “we have wells, bridges and we through choice, and the other was not in will have electricity”. Two households the village. Before the CDC, village priorities thought the change was negligible and one were identified by the elders of the village (4 argued their “lives were still the same” households), the head of the district (one (Household Surveys, 31 October 2005). household), the military commanders and the Taliban (two households) and 3 households said priorities were not set by anyone. 7.2 History of the CDCs In Markaz-e-Dawlatabad, 3 households claimed to have no substantive knowledge of the two CDCs. Another also did not know 7.3 CDCs today the objectives but hoped to attend a meeting soon. The other 7 households General perceived the role of the CDCs to include In Markaz-e-Dawlatabad, 5 households “rehabilitation … conflict resolution … ACKUthought their CDCs met twice a month, 3 achieving solidarity and cooperation within thought once a month and two did not the community … talking about and sharing know. Seven households considered the ideas on development” (Household CDCs to work well, and provided examples, Surveys, October 2005). All respondents while 3 did not know. Seven households knew the CDCs had started two years prior, thought the elders led their community even those who did not know what they and, of these, one linked them with the were. All but one respondent knew the CDCs while the other 6 did not. One Election Commission was chosen by secret household perceived the government, voting/election. Eight households (men and elders and the CDCs to be the joint leaders women) voted while two did not because and two households answered the CDCs. they were not present. Before the CDC, Eight households thought their community village priorities were identified by the leaders were working with the district gov- elders of the village (8 households), the ernment, one stated no, and another did head of the district (one household) and not know. one household did not know. In Choba Temorak Karni Khail, 5 house- THE PROVINCIAL In Choba Temorak Karni Khail, the households thought their CDCs met once a week, FIELD SURVEY REPORTS

194 3 thought once a month and one said “once Seven households believed the CDCs were a week at the start, now twice a month planning new projects, which would bring because of the harvest.” (Household survey, benefits. These consisted of “vocational October 2005). Four households consid- training for women, carpet-weaving, ered the CDCs to be working well and some tailoring, electricity, digging wells and provided examples, one thought it was too husbandry.” Three households did not slow while four did not know. All house- know of any plans. holds agreed that the CDCs led the community. Four households believed their In Choba Temorak Karni Khail, 8 house- community leaders were working with the holds knew some or all of the relevant government, 4 did not know and two said actors that initiated the project and the no. source of the funding; that is, the NSP, the government, and CHA. However, two In Yakhdan, 6 households thought their households did not know. The CDC had not CDCs met twice a month, two stated once a received instalments, so it seemed normal month and two did not know. Seven knew that 7 households did not know who how the CDC functioned and thought it was managed the finances. Nevertheless, 3 working well. Three households did not households understood that the CHA know and had not received any benefits. All would train the CDC members to manage households agreed that the CDC led the the funding. None of the households knew community. Nine households believed their that the Block Grant would be spent on community leaders were working with the building the community centre. Seven had government and one did not know. no idea and 3 trusted the CDCs to spend it on the community. All of the respondents Management of the projects believed neither the community nor the In Markaz-e-Dawlatabad, all 10 households CDCs had asked for non-NSP funding. knew some or all of the relevant actors that initiated the project and the source of the Once construction started, 8 households funding; that is, the NSP, the government, hoped to participate in the process CDCs, MRRD, DRRD, World Bank, and/or although two thought that they would not CHA. Six households knew that the be asked by the CDC. Seven households Treasurer or CDC members managed the expected that everyone in the community finances; however, four did not know. Four would participate while two did not know. households did not know how the Block Five households perceived illiteracy and Grant/money was spent. Four knew some of lack of other relevant skills as the main the details of the spending (hiring builders obstacles to participation, two thought it and engineers and purchasing raw was the lack of time, one blamed the lack of materials) while two simply knew that it was awareness, one focussed on discrimination spent on building the school. Four house- against women, and one household did not holds believed the CDCs had not know. Six households did not know of approached other organizations/institutions future projects, and 4 listed livelihood and for funding, three recalled that the agriculture, bridges, electricity and wells. community had already contacted the SwedishACKU Committee for Afghanistan, the EU, In Yakhdan, 9 households knew some or all the WFP and the PRTs, and two households of the relevant actors that initiated the did not know. project and the source of the funding; that is, the government, MRRD, and CHA. One Half the households claimed to have household had no idea “because no one assisted the project either as labourers, as tells me” (Household Surveys, November part of the procurement and CDP drafting 2005). Eight households knew that the committees, through the community Treasurer of the CDC managed the money savings box, or giving towards the and two did not know. Seven households community contribution of 10 per cent. Six knew the Block Grant was spent on the households did not know who else partici- community projects and two of these were pated and 4 provided the community as able to provide details, for example, pur- their answer. Interestingly, two respondents chasing raw materials. However, 3 house- emphasized that women were excluded holds did not know, even though the from participating. Nine households consid- bridges and aqueducts were completed and ered illiteracy as the main barrier to the electricity was mid-way through con- ANNEX A4: increased participation and the remainder struction. Four households believed the BALKH PROVINCE blamed the lack of time and awareness. CDC and the community had not asked for

195 non-NSP funding, 3 did not know and three household was unsure and two saw no mentioned approaches to the EU, the gov- impact in this respect. ernment and other NGOs. One of these households knew an NGO had recently A range of other changes from the CDC completed a survey and the outcome was were listed, including: the transference in uncertain. knowledge and experience between the CDCs and the community, closer relations All but one of the households had assisted with the government, and better security. in the construction of the two projects and However, one of these households believed this involved mainly working as labourers. the changes were enjoyed only by the men. Five stated that only men and boys partici- The 4 other households did not perceive pated in building the projects, 3 households any other changes but one of these was stated that the whole community partici- confident that their children would benefit. pated, and two did not know. Four thought Six households had not heard about gov- there were no difficulties regarding partici- ernment plans for Afghanistan. The other 4 pation but 3 households perceived the lack mentioned general reconstruction or the of time as the main barrier. One household specific improvement of the main provided the answer of general exclusion Dawlatabad road, and more development and two blamed illiteracy and the lack of projects in Mazar. Nevertheless, all house- education; for example, “some people are holds felt the government was interested in not aware. They use the bridges every day their community. but never think who built them or how they were built.” (Household Surveys, November In Choba Temorak Karni Khail, the answers 2005). Half the households thought the of 5 households reflected governance issues CDC was planning future projects which and representation as their first response; could involve: carpet-weaving, husbandry, for example, unity/solidarity, coordination, livestock, tailoring for women, a school, and support and peacebuilding/conflict resolu- a deep well. tion. Five households did not understand the meaning of the NSP. Seven households either experienced already or hoped the 7.4 Impact of NSP/CDC NSP would improve their lives. The latter depended on the completion of the Perception of the NSP community centre whereas the former In Markaz-e-Dawlatabad, the answers of 6 stemmed from the increased participation households reflected governance and rep- and training. Three households claimed resentation as their first response. Specific there was no improvement. Nine respon- examples included “solving problems… dents claimed no one else had helped them, linking, coordinating and building trust with one household referring to the World between the government with local Food Programme and NGOs. All the house- community… and social justice” (House- holds thought the NSP had improved their hold Surveys, October 2005). Two house- lives through coordination and unity. Eight holds perceived the NSP to be more about households did not perceive any other the projects and resultant services. Two changes from the CDC (past or future). The households did not know the meaning of ACKUother households hoped livelihoods, NSP. Half of the households claimed the NSP transport, unity, and coordination would had brought, or hoped it would bring, a improve through building the community noticeable improvement to their lives. centre. Six households were not aware of These answers varied between the planned the government’s national plans, and the completion of the school, talking with other 4 could only provide very vague infor- people in the community and being mation. Nevertheless, all households consulted, and conflict resolution among believed the government was interested in the ethnic groups. Only 50 per cent were their community. positive, perhaps since the school remained incomplete due to the delay in the instal- In Yakhdan, the answers of 5 households ments. All respondents claimed that no one ranked representation, governance and the else had helped them. Seven households projects as equally important. Two house- believed their village was more united as a holds perceived the NSP to mean gover- result of the CDCs because it was represen- nance and representation, two households tative of the community (ethnicity was par- did not understand the meaning of the NSP ticularly important) and from the increase in and one household pointed solely to THE PROVINCIAL consultation and communal activities. One projects. Nine households argued that the FIELD SURVEY REPORTS

196 NSP had improved their lives through In Yakhdan, all respondents mentioned empowerment, solidarity, the building of several projects that would improve their the bridges and the hope that electricity lives in the future. The most popular were a would be installed. For example: school, clean drinking water and a clinic. All respondents were optimistic and positive Now we can cross (vehicles and about the future because of the NSP animals) easily, which has facilitated projects which reflected their needs, their better relations between us and the strong Muslim faith, and the improved district and the government. If we get security. electricity then we will have the privilege to communicate more and the chance The findings from the 3 communities to listen to radio and watch TV. demonstrated the significant though (Household Survey, November 2005) varying impact of the NSP. Despite some important weaknesses, the programme had Nine households claimed no one else had also created crucial connections between helped them and one set of respondents the three main levels of government and the remembered that the UN cleaned the people. Perhaps the most important lesson drainage once a year. All respondents was the ability of the NSP to instil strong believed the NSP had improved their lives optimism and solidarity within the commu- through unity, better community relations nities. It is therefore appropriate to contrast (especially between ethnic groups) and the sampled non-participating community. freedom of thought. Half the households could not think of other changes caused by the CDC because they were satisfied already with the projects and felt it was too soon to 8. Leaders of community experience more changes, but remained without a CDC optimistic. However, the other half pointed to increased awareness of development and This section provides the findings from the conflict resolution. Eight households did interview with the leaders of Tiamorak, not know about the government’s national Charbolak District. This village of 1000 plans and only vague information was Pashtun families enjoyed a relatively higher provided by the other two households. standard of living through stable agricul- Eight households felt the government was ture. Nevertheless, the community was interested in their community. poor and deeply affected by the war. The group of elders had limited contact with the The future government, which was perceived as weak, In Markaz-e-Dawlatabad, 3 households with NGOs deemed the only potential focussed on specific projects (literacy and providers of basic services. Crucially, the factories) for women in order to improve group claimed that such assistance had not their lives. The other households suggested been provided for 6 years. Consequently, many different ideas: bridges, clinic, wells the leaders were eager to join the NSP. and irrigation, electricity, more schools and the building of roads. All but one household was optimisticACKU for the future because of the 8.1 Overview of the community government and the NSP, the rule of law, security and the commitment of the inter- General national community. However, two house- The village of Tiamorak, like the 31 other holds wanted to see more people involved villages in Charbolak District, was not in the decision-making of the NSP, in partic- selected for the NSP based on the ular for women and the disabled. One of the programme’s criteria. Compared to the households was pessimistic because she nearby community of Choba Temorak Karni was a widow, had no job security and no one Khail (see above), Tiamorak had better irri- could guarantee her children’s future. gation and cultivation and more (shallow) wells. The CHA claimed these advantages In Choba Temorak Karni Khail, 7 house- stemmed from their closer proximity to the holds prioritized the building of a school. road (CHA comments, 9 November 2005). These households also, in addition to the other 3, wanted clean drinking water and a Tiamorak was one hour 15 minutes clinic. All households were optimistic (approx.) by road from Mazar and located 5 ANNEX A4: because the government and the interna- minutes from the main road. The area of the BALKH PROVINCE tional community were committed and village covered 6200 jareb/640 hectares. All security had improved.

197 1000 families were Pashtun, depended on 8.3 Relationship between community farming (husbandry, cotton, apples, wheat, leadership and government peas, barley and watermelon) for their livelihoods (and for consumption) and were Insignificant contact mostly poor. The leaders stated that 10–12 One of the five community leaders had per cent of the population were widows and close contact with the District Head and this 15 per cent were disabled since “this was of was the point of contact for the govern- the war-affected and mined areas”.29 There ment. This approach was also used in an was an average of 3 to 5 families in each emergency. The group felt they had a “very compound or household. The village elders good relationship with the government” but were the only influential figures listed. The considered the capacity and facilities of the age of adulthood was 15–16 years. government to be “weak”. Instead, they saw Ten–fifteen per cent of the community were the NGOs as the providers (Community literate (CHA comments, and Community Leaders, 9 November 2005). Leaders, 9 November 2005). NSP enthusiasm Infrastructure and education The leaders had “heard about the NSP” and The village had its own community building, knew that it encouraged “people to make which was spacious and in good condition. their own decisions and contribution”. Girls could attend a school nearby up to Naturally, the group welcomed the NSP and fourth year only. Boys were able to attend noted that they did not have a savings box. school up to Grade 10 and then continue The group also said that it would introduce their education in Mazar. The school was women representatives. The leaders were twenty minutes’ walk from the centre of extremely disappointed with not being Tiamorak and schooled 1282 pupils from 12 included in the NSP, especially when other villages. In 2004, ESSAR had reconstructed villages nearby were given projects and the previous building under the CDCs. Therefore, they urged the govern- ‘Rehabilitation Agency Foundation Project – ment to make them part of the NSP Badaky School Rehabilitation’ by the (Community Leaders, 9 November 2005). Ministry of Education, UNICEF, UNOPS and the Government of Japan. JICA had also In sum, the findings from Tiamorak supplied some desks. The 30 teachers provided a significant contrast to the 4 other delivered a range of subjects (geography, NSP communities. There was a clear English etc) but there were scarce resources fracture between community and state and and no books visible to the researcher. a grass-roots enthusiasm to repair the tradition of a weak and uninterested government. Although development and 8.2 Existing traditional forms economic growth were important tangible of governance incentives, the Tiamorak leaders also conveyed their eagerness to experience the Leadership and meeting needs psychological benefits of nation building. As Community governance came from “a form the next section shows, these conclusions of commission involving elders of the were substantiated by the findings from the camps, Mullahs and respected people”. ACKUhouseholds interviewed in Tiamorak.

The community was meeting needs using 150 shallow wells but still needed clean 29 This point was not central to drinking water. There were 7 families to one 9. Households without a CDC the research and was therefore well, which were 5 m deep. UNICEF and the not explored in detail. However, Swedish Committee for Afghanistan This section demonstrates how the 6 it is relevant to note that it provided 2–3 wells 6 years ago. However, sampled households were representative of conflicted with information from the leaders claimed that they “never had a their community in terms of household one of the other communities clinic or doctor or medical facilities” and composition: livelihoods; income level; and nearby. Second, unlike other have to go to Mazar using rented vehicles ethnicity. First, the profile details that the communities there were no when someone is sick (Community Leaders, households were deeply affected by the war chalked markings from mine 9 November 2005). (although to varying degrees). However, the clearance teams, for example, majority of households perceived a post-war Halo Trust. improvement in security and general stability at the local level. Informants were satisfied with the performance of their tra- THE PROVINCIAL ditional shura but realized two barriers to FIELD SURVEY REPORTS

198 development: weak relationship with the would directly improve community gover- government and international organizations nance. and donors. Consequently, all professed the urgent need for clean drinking water and Perception of national solidarity half of the households were not optimistic None of the households had heard about for the future. the government plans for the country because either they were uneducated or excluded as women. Four households 9.1 Household profile believed the government was not interested in their community, one disagreed and one Basic data did not know. The 6 households interviewed consisted mainly of 2–3 men and 2–3 women. One The future household had one man and 6 women and Clean drinking water was the most common another had 7 men and 13 women. There need for improving lives, followed by a was an average of 13.5 children in each school, clinic and electricity. An informant household. All households had dependents pinpointed the primary problem: and 5 had multiple dependents – widows, sick and elderly. None were displaced. Half …everybody is sick and has stomach the households were farmers, two relied on problems. When we go to the doctor labouring and one worked for an NGO. All they say it is because of the dirty water but one of the households was poor and and they advise us to boil it but we do none were rich. All households were not have enough fuel to boil the water. Pashtun. (Household Survey, 9 November 2005)

Impact of the war and after Three households were unconditionally All households were affected by the war. optimistic about the future because of their The most common and combined impacts faith in Islam. One respondent felt the NSP were the killing of immediate family was needed to improve their lives and two members, houses destroyed and families households were pessimistic because they displaced. Two households claimed their were widowed or had lost most of their lives had not improved since the end of the adult family members, and were now war and the other 4 stated significant responsible for several children. improvements in security and general stability. All households claimed that they The findings from the households in had not received assistance. Tiamorak highlighted two crucial gaps towards establishing sustainable development: inadequate constructive contact with 9.2 Community today the government, and third party provision of assistance. Despite having agriculture as a Governance reliable source of livelihoods (relative to the All households defined the community lead- local context), households in Tiamorak ership as the traditional shura/commission were not able to fulfil the basic need of or elders,ACKU identified them as the decision- clean drinking water. Moreover, there was makers, considered the community united, no mechanism to ensure the fulfilment of and all participated in community work. this need in the future. Five households thought their community leaders worked with the district government and one did not know. 10. Lessons from the CFDO 30 Prospects for funding 30 This section is based on Four households thought that the This section taps into the experience of the two interviews with the Director, community had not been able to approach CFDO in Mazar and focusses on their insight Education Officer and Social organizations/institutions for funding (other into establishing strong community gover- Worker of the CFDO, and the than NSP, FPs and MRRD). One household nance and sustainable poverty reduction Provincial Director of UN- thought UNICEF were approached, without projects. From this, several lessons are iden- HABITAT. success, and one did not know. Only two tified for the NSP. The CFDO also provided households had heard of the NSP and only direct advice for the programme. First, it is one knew that it created projects. All house- appropriate to identify the relevance and ANNEX A4: holds thought their leaders would welcome links. BALKH PROVINCE the creation of a CDC and some thought it

199 10.1 The indigenous roots of the NSP getting technical support when drafting In 1995, UN-HABITAT started its own proposals for donors and government Community Development Programme, departments (UN-HABITAT Provincial which was run by Community Forums in six Director, 1 November 2005). provinces. In 2001/2002, the UN agency phased out from the programme, but the Activities were divided into 4 sectors: Community Forums in Mazar decided to Education (200 teachers delivering different retain the established system of community courses for 3000 students in the community, governance, and came together to be regis- for example, language, maths, arts, sports tered as an umbrella NGO called the CFDO. and theatre); Protection Unit (finding and Mazar is the only former Forum still func- creating jobs for men and women, with 200 tioning and is “working well” as a local NGO. poverty reduction and vocational training projects completed, and ongoing involving The city of Mazar is divided into 10 embroidery, weaving and livestock); districts/199 streets and each district has its Women’s Empowerment; and Social own Community Forum. The latter is Services (health, kindergartens and sanita- composed of 5 neighbourhoods and each tion). There was no construction of physical neighbourhood has a Forum with an office. infrastructure. Each neighbourhood is divided into clusters, which elect a representative to sit UN-HABITAT noted that the CFDO was par- at the district level. The neighbourhood ticularly strong and transparent when Forums feed into district Forums, which in managing their budget. For example, when turn feed into the CFDO (UN-HABITAT it submitted a proposal to aid agencies it Provincial Director, 1 November 2005). included all the expenses and the CFDO Interestingly, the CFDO pointed out that, salaries. However, with each proposal they “the NSP was established based on us.” saved the administration costs (based on (CFDO Staff, 10 November 2005). UN guidelines) and then used this to expand their programmes. For example, from saving the administration costs from 10.2 Governance an income-generation project, they could The CFDO had a committee, manager and move this funding to another sector. In treasurer etc. Throughout this structure, 2004/2005, the CFDO received nine grants UN-HABITAT noted, “that men and women totalling US $140,000–150,000 from USAID, work together, secret voting is used, the PRTs, IOM, WHO, WFP and UNHCR (UN- elections are held every year and this is all HABITAT Provincial Director, 1 November managed by the CFDO.” The members 2005). claimed to have “not changed the State’s system of governance” but just have The CFDO emphasized that remaining sus- “members of districts coming together”. tainable was easier for them compared to There seemed to be a strong relationship rural CDCs because their members in Mazar with the government as the CFDO was reg- were typically better educated. Second, the istered with the Department of Planning, CFDO felt that the NSP did not explain its and worked with the Department of objectives completely when it first started, Women’s Affairs, the Department of ACKUand “did not pass on sufficient skills or infor- Refugees and Returnees, and the mation”. Instead, there was simply a “need Department of Education (UN-HABITAT to have projects”. They provided the Provincial Director, 1 November 2005). UN- example of an “NSP project in Kishindeh HABITAT stated that neither the CFDO nor District that did not maintain the lining of a the Community Forums wanted to join the generator from house-to-house”. NSP and would not meet the criteria (UN- Consequently, the project finished with HABITAT Provincial Director, 1 November “some having power and some not, but they 2005). and the FP have spent all the money.” The CFDO felt that a proper survey had not been completed and the community was 10.3 Sustainability not included in the original estimation. As The CFDO claimed to manage the funding an alternative, the CFDO members advised: process by mainly drafting development proposals and sending them to interna- When implementing projects you need tional NGOs and UN agencies. There was to discuss ownership and sustainability also coordination between the shuras and from the beginning – how to take care THE PROVINCIAL government and the CFDO, for example, in and use the money to do the repairs. FIELD SURVEY REPORTS

200 Our recommendation is not just to structure was crucial. Second, sustainability have projects but to ensure there required innovative projects, grounded in is technical support. priority local needs and the creation of (CFDO Staff, 10 November 2005) economic activities, in addition to accountability and transparency. Third, staff needed Third, in ensuring its projects helped adequate skills. Last, the mixing of men and people gain an economic activity, the CFDO women’s CDCs was deemed preferable always conducted a needs assessment, and though cooperation was essential. then prioritized the projects according to the one which gave more privileges to all of/the majority in the community. The community voted where there was more than one option.

Fourth, the CFDO prevented corruption in three ways: accountability, reporting and transparency. The latter was emphasized a lot in principle and in practice during implementation of a project. For example:

…we ask our members that if they see corruption to discuss and share it with the community and this provides good lessons for others and teaches them to be careful not to get a bad name. We have monthly meetings among the Forums, sharing lessons and getting feedback on problems. (CFDO Staff, 10 November 2005)

The last key to sustainability was encouraging cooperation between men and women in the Forums and the CFDO. It was argued that the mixing of men and women at the decision-making levels became possible after the fall of the Taliban but had its roots in co-ed schools, which influenced present and future generations. The Manager of the CFDO, a woman, thought it was better for CDCs to be mixed because “men and women provide good input, which creates a healthy balance”. Nevertheless, the Manager added that it was difficult to expect change in someACKU areas, so the overriding principle was to encourage but ultimately let the communities decide.

10.4 The NSP The CFDO found that the NSP “had a very good impact on the mentality and spirit of the people”. While believing the CDCs could be effective, the respondents thought that their performance varied considerably as they really “depended on the quality of the FPs’ technical support” (CFDO Staff, 10 November 2005).

Four important lessons for the NSP and the ANNEX A4: CDCs can be drawn from the insight into BALKH PROVINCE and from the CFDO. Strong organizational

201 ACKU

THE PROVINCIAL FIELD SURVEY REPORTS

202 A5 Bamyan Province Provincial Field Research Findings

1. Timing and scope of the research The AKDN/NSP Director for Shibar District The research team1 visited Bamyan from AKDN/NSP District Field staff 27–31 October. The scope of the research The CDC of Shah Qadam (Shibar was therefore limited by the time available. District) Since the team was mainly working in Kabul Representatives of 10 households in Province, one week was allocated to the Shah Qadam research in Bamyan. However, this was The Director of UN-HABITAT /NSP and further reduced by the fact that the FP staff Programme Engineer. were all to be on leave for the week leading up to Eid. With the help of the OC and goodwill and flexibility on the part of all those involved in the programme, the 2. General observation of researchers were able to complete the conditions in the Province original research plan in 4 days but this necessarily left little time for any secondary There was visible evidence of widespread investigation beyond the basic research destruction of homes, bazaars, and plan. It had been decided to work mainly monuments and only slow recovery with one facilitating partner (AKDN) which (compared for example to neighbouring was not covered by any other research Parwan). team, and to visit one established CDC in the second district it has taken on, Shibar. Many settlements appear to have remained This was carried out successfully by deserted. The main route between Kabul adapting the household survey methodol- and Herat passes through the Shibar Pass ogy so ACKUthat it could be completed in one and Bamyan but is slow and difficult, so is day. It was also possible to complete inter- not much used by commercial transport views with government, DRRD and OC, and that might stimulate the local economy, to hold an informal meeting with the though there are some local truckers. It also Director and Programme Engineer of UN- makes marketing of produce outside the HABITAT, the longest-serving FP in the Province difficult. Province, but whose work in Balkh was to be covered by another team.

Persons interviewed: 3. Provincial government The Deputy Governor 1 Margaret Chard (Team Leader) The Director of DRRD The Deputy Governor, who was inter- with Marina Nawabi and The NSP OC consultant and team viewed, worked in the NSP prior to his Jawed Nader. (including two DRRD staff) present appointment and so understands it The DRRD NSP Administrator well. He said that NSP is the only The Director of AKDN (NSP FP) programme that has had any real impact so The AKDN Regional Manager of NSP far in the Province. The best aspect is the The AKDN Finance Manager CDC, which enables communities to solve their own problems.

203 He saw the programme as much more cost- He described how the documentary process effective than conventional reconstruction is undertaken and projects selected with the programmes of contractors or NGOs help of the FP before being processed by (comparing the costs of road building as an the OC. Apart from their own monitoring example) and believed it could be even teams, which involve other DRRD staff more effective if the MDRRD had the besides the NSP staff, including the Director capacity to run it directly. Therefore his view himself, they run joint monitoring pro- is that donors should concentrate on grammes, quarterly reviews and trans- building government capacity. parency checks on CDC financial management with the OC and FP. The researchers also learnt from the CDC in Shibar and the household survey that DRRD staff also 4. The DRRD at the observe CDC elections. provincial and district level Every three months they have a meeting with the FP and OC to review the 4.1 Bamyan DRRD programme. They also aim to hold a main- The DRRD in Bamyan has 40 staff of which tenance workshop to promote community 28 are in permanent posts. They include: 5 participation in maintenance. engineers, one advisor, programme staff, computer operators (they have 5 computers), radio operator etc. However 4.3 Experience of the DRRD NSP staff they have only two vehicles and a limited The DRRD NSP staff, an administrator and budget for running costs, to cover 6 an engineer participated in the group districts: one is allocated to the central interview with the OC team, but the admin- office and one is for monitoring the 7 pro- istrator interviewed individually added grammes they run, including NSP. some further comments.

In addition to NSP which has 611 projects Asked about the performance of the FP he (400 completed) they are responsible for said that it can be judged on the success of WATSAN, Area Base, MISFA (micro-finance) the CDCs and the people. His assessment of Quick Response, Capacity-building, and the CDC was that 80 per cent are well NEEPR (emergency employment – mostly managed and should become permanent labour-intensive road building). institutions.

As regards his own capacity he said he had 4.2 NSP management received appropriate training in monitoring The DRRD Director is strongly in favour of and community development. the NSP, which he said is qualitatively different from the other programmes they run though it overlaps with them. His view 4.4 Role and impact of NSP is that NSP will enable them to reduce In the administrator’s view, contact between poverty and move towards development. government at different levels and the com- They would like to be able to expand the ACKUmunities has increased by 80–100 per cent NSP to the only district not yet covered. but mainly as a result of the new laws and government structures. He thought NSP He claimed that the DRRD, with enough had contributed to this change but was not staff and resources and consultancy (by that the main factor. he meant retaining a technical advisor but not FP and OC operational staff ), could run Nevertheless he, like the Director, thought the programme directly. However, their role that it is important that NSP should is limited at present with only two full-time continue and shared the Director’s view of NSP staff and limited resources, especially the capacity of the DRRD to run the transport. programme if it had the necessary resources, suggesting that the government Despite its limited resources the DRRD should be given resources to hire experi- (including the Director himself) seems to enced staff and cover fuel and expenses be directly involved on a day-to-day basis in costs for district visits. the management and supervision of the NSP and to give it high priority. THE PROVINCIAL FIELD SURVEY REPORTS

204 5. The Oversight Consultant Working with two FP was also not a at the provincial level problem. They each had their particular strengths: UN-HABITAT has more experi- The Oversight Consultant was interviewed ence but AKDN has more resources, and with his team, which included the DRRD complemented each other (cooperation NSP Administrator and Engineer. It was between the FP themselves was also noted clear that they all work together on a daily later in the field visit). basis. The main problems occur in ensuring the supervision of engineering projects. The OC 5.1 General comments on the considered that the FP do not hire enough strengths and weaknesses of the NSP engineers but claim they are meeting their They considered the strength of the contractual obligations. Since the OC has no programme is that it concentrates on access to the terms of these contracts he people and developing their capacity to cannot contest their claims. solve problems. It is bottom-up, the opposite of previous top-down pro- Another problem is that Bamyan has a very grammes, and since there were no tradi- high number of projects (he claimed the tional shura in Bamyan, it was readily second-highest in the country) but only the accepted by the people. The main concern same OC resources as provinces with fewer is for its sustainability – whether the projects. They also only have 4 months clear programme will continue to support the of winter conditions in which to get round process that has been started. the projects.

The OC felt strongly that local conditions, 5.2 The capacity-building role such as the winter weather and resource of the OC levels, should be taken into account when They thought the OC has a leadership/con- assessing performance. sultancy role (two teams are close in Dari) and works to advise both the FP and CDC. The OC team also works closely with DRRD (see above: in fact the two DRRD/NSP staff 6. The facilitating partners were present as part of the OC’s team). at the provincial level They had all received many training workshops in Kabul on all aspects of the Two facilitating partners are operating in programme and these had proved useful in Bamyan. UN-HABITAT started the progr- the field. However they did not mention any amme and AKDN (who facilitated our further training or systematic capacity- community visit) started more recently. building locally, though everyone said (in Both were interviewed at the management his presence and at other times) the OC was level. ‘very helpful’.

The OC expressed the view that the DRRD 6.1 UN-HABITAT could takeACKU over the programme ‘after more Informal interview with the Director. The training’ but it would be difficult without the Programme Engineer was also present and current facilitation. He presumably meant responded to the short questionnaire that they could develop the expertise but framed by the engineering consultant. would probably lack the resources. 6.1.1 The role of the FP The Director described the NSP as making a 5.3 The supervisory role of the OC bridge between government and comm- The OC thought that there were no difficul- unity. At present the FP is the bridge ties in supervising some areas of the work. between the community and MMRD but There are no problems in ensuring that the eventually will be phased out and the CDC eligibility criteria are understood and will make their own contacts with MDRRD applied and the money transfer system other ministries, and the donors. He saw works well unless there are bank delays. this beginning to happen but believed there This is because they prepare applications is a lot of capacity-building still to do. For once 80 per cent of the first instalment is that reason he felt that it is important that ANNEX A5: used. NSP continues and stressed that it is BAMYAN PROVINCE premature to withdraw it.

205 He thought NSP is having a profound effect AKDN in fact also runs its own projects in in transforming the communities that were the communities where it is running NSP, disunited and had no leadership for devel- which either complement it or tackle other opment. They now have 5-year develop- development issues. The other management plans, and they are able to make good ment team members were confident that choices for projects within the NSP budget the communities perceived the NSP as a while deferring other projects in the devel- government programme. This was not clear opment plan till later. in the beginning and many thought it would not cover their villages. They saw it as their In 95 per cent of the communities in the role to set this right and facilitate under- programme there had been no difficulties in standing of the programme. getting all groups to join in the CDC. In a few there were some who were unwilling to 6.2.2 Relations with DRRD/ get involved, mostly because at first they capacity of DRRD didn’t think it was going to be important. They said relations with DRRD were extremely good. They are in ‘continuous 6.1.2 Training in the communities dialogue’. They also use them to trou- The Director described the 5 phases of bleshoot any problems with the community. training which they follow as in the manual They thought DRRD lacked capacity in and said that after the fifth phase they start community development work that would project implementation. They have also prevent it from moving beyond a monitor- started literacy classes in 24 CDC (one ing and supervision role and suggested they male/one female class in each) over the last should be given this experience, because 18 months. It was not planned initially but without it the quality of supervision will also they found that it was very necessary and not be useful. will now generalize it. 6.2.3 NSP management structure 6.1.3 The capacity of the FP to respond They expressed some impatience with the to the demands of the programme NSP management structure. ‘There are a lot In assessing UN-HABITAT’s capacity to of duplications of effort happening, a lot of respond to the demands of the programme human resources engaged and many checks he explained that the expansion of the staff and balances.’ They would rather send and resources is planned (centrally) on the proposals direct to Kabul for example basis of expected expansion of the work, so instead of going through the local process- it presents no problem. In other words they ing first. have the capacity to expand their work if required. They also suggested there could be more flexibility in the management of the Block Grants. Because of the budget limit for all 6.2 AKDN programme management communities regardless of size, ‘in some Interview with senior management: CDCs one cluster comes up with a road Director and Regional NSP Manager. Joined project and the other with drinking water. later by the District NSP Director for Shibar Ignoring the urgency of the water project and the Finance Manager ACKUthey reach a consensus on a third project such as solar electricity.’(The field staff, CDC 6.2.1 The role of the FP members and householders later described The Director explained, ‘AKDN has a long- why such a compromise was agreed in Shah term development plan in Afghanistan. NSP Qadam.) is our first step as a community development programme. We have found it a strong The NSP in this respect clearly contradicts way to get into the community. We see their normal community development ourselves as facilitators.’ His emphasis was approach. However, the Regional NSP on this development agenda based on a Manager said that the communities under- comprehensive community development stood that some things in their develop- plan, rather than issues of governance and ment plan would not be covered by NSP and national solidarity. they would have to look for other funding. In general, he was more sympathetic to the Although he commented that they see the NSP concept than the Director. CDC ‘as a permanent structure for local governance’ he did not, like UN-HABITAT, 6.2.4 Training in the community THE PROVINCIAL see any role for the FP in building links The problems of the people are first identi- FIELD SURVEY REPORTS between community and government. fied and different training is then given to

206 build capacity as necessary (purchasing, 6.3 AKDN District and accountancy and procurement, costs etc.) project management for managing their project and develop- Interviews with the field staff: an interview ment plan. The preparation of the develop- with women staff from two districts and a ment plan is also clearly a capacity-building second interview with men and women staff exercise, which involves the exercise in (FC and SO) in Shibar District after the CDC listing priorities as in the NSP guidelines and visit. It was not possible to interview any of later described by Shah Qadam community. the engineers.

In the case of remote communities it has 6.3.1 Staff capacity and training proved necessary to take the CDC members The field staff felt that their training and to neighbouring projects (in one case to experience of completing one phase of the Kabul) to see what they are like. These are programme (in Surkpasa District) meant called exposure visits and are funded by that they now had all the skills they needed AKDN, not the NSP budget. to tackle the second phase with confidence. The key skills they cited were for establish- ‘...at the beginning they didn’t believe ing relations with the community with the government would provide money cultural and social sensitivity; knowledge of – once they saw it happened development. They had received training they got interested.’ on: NSP awareness, community mobilization and clustering the communities. Other AKDN is also providing literacy classes, training related to identifying priorities for a especially for women. development plan and aspects of project development, proposal implementation and 6.2.5 Capacity of the FP to monitoring. They did not mention any respond to the programme demands specific training for organizing the elections In order to take on the NSP in Bamyan they or capacity-building of the CDC, though this had had to advertise and select SO (social may have been included in NSP awareness. organizers) and CF (community facilitators) They thought the project training was the in each district They structure their work most useful. using the manual but 4 staff also went to India to be exposed to functioning CDC 6.3.2 Project relevance, sustainability programmes and brought back this and efficiency expertise. The field staff described how projects are selected. They were aware that the choice is AKDN central management plans staff and often a compromise because the primary resources in advance of expected require- need of the community (eg irrigation as in ments so it can respond as needed in this the case of Shah Qadam) is beyond the NSP way. budget.

AKDN is clearly well resourced and pays a They also said certain project proposals, lot of attention to staff recruitment and such as solar energy and roads, are normally training, including a comparatively high dealt with quickly while others (involving numberACKU of women field staff. In the two other ministries for example) are delayed districts there are 9 women to 16 men (see beyond the average time of 6 months from below 6.3). The 4 women SO working in identification to the start of implementa- Shibar were returned refugees from Iran, tion. This demoralizes the communities and where they seem to have had some experi- the delays are getting worse. ence of community work. It may be that this is another reason for If the number of projects increases they can encouraging the communities to start with a expand and train the staff. They are in fact project they can complete quickly and waiting for government approval to within budget – from a capacity-building establish 35 more shuras in Shibar, covering and community-building point of view this the most remote communities, and have makes sense. Electricity projects also seem started some surveys. to be popular and it also makes the FP look more efficient.

As regards sustainability, they said they took ANNEX A5: necessary steps to select equipment that is BAMYAN PROVINCE guaranteed (or to carry out necessary engi-

207 neering supervision/quality checks) and to Projects ensure maintenance training and budgeting Ten general projects have been imple- is in place (this was planned for the Shah mented/are being implemented so far: for Qadam project). hydro-electricity and solar electricity.

The impact of the project is also monitored Nineteen have been proposed for women: after completion. 14 for animal husbandry and 4 for carpet- weaving have been submitted for approval. 6.3.3 District profile of NSP in Shibar based on information given by the The above account suggests they start with district staff and an AKDN data sheet electricity projects (which are from environ- on the election of the CDC. mentally sustainable sources) as a) simple to organize b) inclusive of the whole NSP Staff community. Carpet-weaving and animal In Shibar District there are 15 programme husbandry seem to be promoted for women staff: One NSP manager; 6 community facili- – this suggests some manipulation of the tators, CF (all men); 4 social organizers SO, choice of priorities. (all women); 4 engineers and 7 support staff: one logistics officer; 3 drivers; 3 guards. 7. General comments on the In Surkpasa District (which has already management of NSP in Bamyan completed phase one) there are 20 programme staff: one NSP manager; 13 CF (of which 3 are women); two SO (both 7.1 Implementation and women); 4 engineers and 7 support staff as future implementation in Shibar. There was clear evidence of effective cooperation between DRRD, OC and FP from The CDC in Shibar them and from the community respon- Thirty-five general shura (mixed shura) dents, which undoubtedly contributes to with 35 special shura for women are the operational effectiveness of the established and there are 31 shura programme in the Province at this stage. still to mobilize. However, it is not clear how the manage- The number of CDC members depends ment can progress from this stage to one in on the number of clusters but a typical which the facilitation functions of FP and CDC would have 5 members and there OC are phased out. would also be 5 members of the women’s shura, which is constituted The DRRD, despite protestations, clearly in the same way as the main shura. would not have the capacity in the short When no women are elected to the term to take over sole management, not main CDC shura, two representatives only in terms of staff numbers but from the women’s shura join the main community development expertise. The CDC, making a shura of 7 members. present set up also affords little opportunity The data sheet shows that in all 18 ACKUto build that expertise beyond their current women were elected directly to the (highly committed but under resourced) general shuras in 10 communities. monitoring and supervisory role, though In the majority the women are they could be given field experience by the co-opted as described. FP as suggested by AKDN (and as practised Five shura have women deputies. by SDF Kabul). The populations represented by each CDC vary from 25 families (in very In fact there is no conscious attempt to inaccessible places) to 270 families. build the capacity of the DRRD to run NSP. Widows and disabled: average 3–5 The OC has adopted a coordinating and widows in a community. operational, rather than a capacity-building role. As such and with the resource con- The rich minority have land, cars and trucks. straints on DRRD recruitment, it is unclear They are powerful gunmen and former how the OC could be phased out at this commanders. Most families are poor and it stage. is the middle poor or most poor who are in the CDC. The other necessary development would be THE PROVINCIAL the capacity of the CDC to initiate and FIELD SURVEY REPORTS

208 manage their own projects in direct negoti- 7.3 Potential threats to ation with NGOs, government ministries further implementation and contractors, thus requiring only The existing close relationship between the technical assistance and regulatory manage- OC and both FP and DRRD staff (also ment from DRRD. observed in Kabul) which is operationally effective at this stage also carries some This means that the FP should also have an negative potential. There is first of all little exit strategy from their facilitating role so incentive for either OC or FP to move that they can then continue to offer services towards the envisaged end state in which to the CDC in competition with other DRRD and CDC become independent. In providers. However, (see 8. below) the CDC the present set up the arrangement is also are still not at this level of capacity and there incompatible with exercising independent is some question about how some of the control of the management of the remoter communities could independently programme for accountability purposes. attract investment. Despite the ever-growing mountain of form filling etc., the scope for corruption therefore exists at all levels which is not yet 7.2 The role of the FP counter-balanced by effective public The heads of the two FP had very different scrutiny at the community level, or by inde- concepts of the relationship between their pendent government audit. organization and the NSP. UN-HABITAT did see their role as transitional and directed towards a situation where facilitation between the CDC and government was no 8. Community with a CDC longer necessary. AKDN sees the NSP as an entry point and institutional framework for expanding their own community develop- 8.1 Shah Qadam, Shibar District ment work. It is true that at the operational The community was selected because it is level under their Afghan NSP management typical in terms of social economic and geo- they were promoting the programme as a graphic conditions, of average size, with a government initiative and understood the mixed shura running a women’s project NSP concept. However, at the same time (distribution of sheep) and a solar electricity they are implementing other projects of project. their own and there was also a tendency for some staff to emphasize to the community Data provided by the FP field staff that it is AKDN that delivers the projects. There are 90 families with a population of (Nevertheless the villagers in Shah Qadam 432. Fourteen sheep were purchased as a were clear that NSP is a government women’s project for distribution to widows. programme and AKDN are ‘the contrac- (In fact they were not specifically allocated tors’.) to widows in the village – see Household Survey.] Both FPs (like SDF in Kabul) had the capacity to expand their cover by recruiting Livelihoods (income-generating activities): and trainingACKU effective staff. They also have a The majority are general farmers and proven expertise in community develop- income is from cash crops (wheat and ment work and could be required to give potatoes) and animal husbandry. field training to DRRD staff (as occurred in Minority occupations are: Kabul). This means that in the current Tr uck drivers situation they have the capacity to respond Shop keepers. to the demands of the programme and their participation is necessary for the next phase General observation by the research team of the programme. However, their greater This Hazara community is situated at the facility should not be allowed to take the furthest point of a road usable by car. The form of competing with DRRD for develop- terrain is steep hillsides, which provide ment staff (such as engineers) and pasture and a very restricted area of arable community development work outside NSP cultivation, which could be enhanced by an should be complementary to it and enhance irrigation scheme. There are no shops. The its impact rather than using it as a vehicle Secretary of the CDC, who is a truck driver, for NGO privileged access to communities. and the shopkeepers work outside the ANNEX A5: village. BAMYAN PROVINCE

209 The villagers were driven from their homes, the representatives for each locality lost their possessions, and hid in caves in (cluster) and has an open meeting once a the mountains during the Taliban rule. Any month to report on progress and for the wealthier members of the community have treasurer to explain the finances. settled permanently in Kabul and there have Householders said all but those in the most been no returnees. The community is distant locations participate. However, the generally poor and all but a few are illiterate. survey revealed that householders, espe- They now have a school for boys and can cially women do not have a complete grasp get to a clinic in summer months. AKDN of the programme but rely on the shura to runs literacy classes in which only women decide. are enrolled (30). Apart from a development plan, a well-maintained cashbook and copies of contracts, 8.2 Legitimacy and acceptance the CDC activities were not documented. of the CDC (Only 5 members of the CDC, 4 men and The CDC has been functioning for one woman, and very few in the community one year are literate.) It sits as a mixed shura, though the women’s group was elected separately 8.3.1 Projects and has chosen projects specifically for The CDC has produced a development women plan, which includes a number of projects. Three leaders of the shura (Head, Of these it has implemented one (women’s) Secretary and Treasurer) are men; the project, to distribute sheep to the poorest Deputy is a woman. They were elected women (widows and others). Some of this by the shura members after the general target group obviously received a sheep but election others apparently didn’t or at least the basis Eight men and 9 women members were for selection was not transparent, especially interviewed together by the researchers. to the women, and we saw no documentation of purchases although the CDC leaders 8.2.1 The Elections told us the price they bargained so they Due to the illiteracy levels the election could buy extra sheep. This may account for process had to be assisted. Illiterate voters some, other than poor women, who asked literate members of the community received sheep? (rather than the AKDN and DRRD representatives who were present) to write the A second project is about to be completed names for them, trusting their honesty. and is a general project that will benefit The women’s shura was elected by having a every household: a solar energy project. box for each candidate who stood by her Information about this project was much box to identify it. better organized and the contracts for supply and installation were there. A charge The household survey suggests that this is to be made for each light bulb to raise process was regarded as a free election and funds for other projects and for mainte- the shura is accepted as the representative nance. Householders will be trained to of the village. One elderly woman would ACKUmaintain their equipment and one have preferred a different leader but recog- community member will be trained for nized she was outvoted. general maintenance. After it had been selected, AKDN arranged for the men from Although this was apparently a satisfactory the shura to see a similar installation with a democratic process, without periodic UN-HABITAT project. The project has elections it could entrench a CDC which general acceptance but it is not clear how may have lost the trust of the community much detail the householders understand. and is no longer democratic. The decision to opt for this project took place after heated debate followed by a 8.3 Functioning in relation vote. The issue was that the main need of to the whole community the village is for irrigation but this was going The CDC involved the whole community in to cost much more than the NSP grant. The discussing the options for projects and then solar electricity was also going to benefit made the final decision. everyone equally. Since all work in agriculture (landowners and labourers), irrigation THE PROVINCIAL It reports orally to the community through would benefit all, but some more than FIELD SURVEY REPORTS

210 others. It seems likely that AKDN suggested 8.6 The capacity of the CDC the solar project as an affordable compro- Assessment of the general CDC based on mise? the criteria in the manual: Able to function with difficulty. That is, still needing support and capacity-building, including literacy and 8.4 Relationship between understanding of accounts. the CDC and Government Assessment of the women’s shura: Not ‘Before we didn’t have contact and able. That is, needing specific capacity- communication with government and building, especially literacy and accounting. now it is very good from every aspect. After the Taliban collapsed our lives took The CDC still has many limitations with a turn for the better and we are hopeful. regard to documentation and procedures Before government collected from us and therefore for accountability, but is – now they are contributing to us.’ applying the principles of CDC as a community representative body and has They were fully aware that the programme general acceptance and trust. The imple- was a government programme and that the mentation of the first (sheep) project was money came from the World Bank and not transparent and most CDC members (as donors. well as the community at large) were vague about what was planned and what was They also said if they had any complaints actually done. Cash was accounted for and that they could not solve they would take it the price of the sheep but no receipts to the district government though they shown. The solar project is likely to be were not aware of any formal complaints better organized and increase capacity and procedure, but obviously expected to be confidence. As more CDC and community heard. members become literate, understanding and accountability could grow.

8.5 Relationship between Key issues for sustainability the CDC and the FP There are 3 key issues for the continuity of the CDC as a democratic institution for ‘They played a great role in NSP community governance and development: which was essential to provide us with guidance.’ 1. The capacity of the majority to understand and monitor the work of the CDC CDC leaders received formal training in pur- – this requires literacy, understanding of chasing and procurement and advice on simple accounting and, especially for the getting the best prices, which was much women, greater awareness of the wider appreciated. However, as with the election, society. they insisted on their autonomy: 2. Periodic renewal of the mandate of ‘We did bargain and do this project by the CDC members – i.e. elections. ourselvesACKU and AKDN is only helping us.’ The honesty of the CDC and the trust of the community can be compromised They understood AKDN’s role as a facilitator by exclusion and /or corruption, if the of NSP for government and in referring to elections do not happen periodically. other AKDN projects (seed distribution, training health workers), understood they 3. The further assistance of the govern- were outside the NSP. ment in encouraging the NGOs and donors to cover these remote areas. The literacy classes were particularly mentioned by the women and will be crucial for the long-term success of the CDC. However, we did not understand why there were no literacy courses for men. We also felt there was a tendency to be manipulative rather than facilitating of community needs. Hence the defensiveness of the CDC ANNEX A5: members? BAMYAN PROVINCE

211 9. Household Survey: The Taliban meanwhile robbed their Shah Qadam, Shibar District houses. One was at first forced to work for the Taliban and fled later. The Arab who was Summary of results: already displaced moved again to a different district but lost a child frozen to death on the way. One stayed in the village but was 9.1 The sample robbed by the Taliban. All fled under threat Representatives of 10 households (5 women of violence; two women’s husbands experi- and 5 men) were interviewed (though two enced extreme violence, one was perma- are father and son). Due to time constraints nently disabled. Another lost a son and a and the dispersed settlement in very steep daughter in the war. terrain without roads, they were contacted in advance and gathered in two meeting After the fall of the Taliban all returned. One, places. Under the circumstances the sample the widow, to the same poverty as before. was considered as representative as possible All the others saw a better life. The 5 men given that a random sample was not cited security as the main gain, 3 had expe- possible. The villagers applied the guide- rienced economic improvement and two lines we gave as best they could with the cited international assistance and one gov- following result: ernment support. The women said things got better ‘day by day’ and two mentioned Respondents came from 3 areas of the the coming of the shura. community. Their ages ranged from 35–70 (average 49). 9.3. General understanding The CDC already explained that the and awareness whole community is poor but within The respondents’ replies to questions about that the respondents assessed the CDC and the NSP and government themselves as ‘poor’: (5) mostly due suggest that there is a significant gap to lack of land or other vulnerability; between men and women (even though middle/average (4); and one household one is CDC deputy and one a CDC member) with 3 sources of income as ‘rich’. in their understanding of the NSP The average household size was 11 programme and the functioning of the CDC. and consisted of 5 two-, and 5 three- generation families. (parents and The 5 male respondents had either children, grandchildren). adequate (2) or a high (3) level of under- Four households had disabled, sick standing of the CDC functions, project or elderly dependents (including the details etc., and general awareness of the husband in one family) and there was relationship with government and the FP one household headed by an elderly and their respective roles was at a similar widow with only one working man level. (son). They had an average of 5 children below working age. Three of the women respondents had a One man was literate. None of the good understanding of the purpose of the women. ACKUCDC but incomplete understanding of how Nine are Hazara and one an Arab it works, especially the management of the displaced during the war. finances and the criteria for the distribution The main livelihood in every family is of sheep, which was said to be a women’s agriculture, either on their own land or project. Two of these had a fair degree of as labourers for others (or both). Four awareness of the national programme families had other sources of income: (though they did not know the name) and one as a small trader; one from sons the role of government and FP. The other street trading in Kabul; one is a teacher; women, including the widow, said them- in the ‘rich’ family the husband is a selves that they understood very little about guard for the school and the wife it and were uncertain when they did offer an trained as a community health worker answer. (AKDN funded). ‘I don’t know what NSP means. CDC is that men and women come 9.2 War experience/post-war together for working and meetings but The majority (7) fled the village and hid in we don’t have the literacy to know.’ THE PROVINCIAL the mountains, where they suffered hunger. FIELD SURVEY REPORTS

212 9.4 The history of the CDC said she participated in the decision with When asked what the CDC is, all except one the men). A fourth (not a shura member) (elderly widow) had an answer: two men said these decisions were taken by the described the national solidarity concept shura. clearly; one woman and two men described it as a form of representation/governance: All the respondents knew about the solar ‘It is our representative’, ‘CDC is our gov- electricity project and knew it was going to ernment’; problem solving and community include everyone. This seemed to be part of cooperation/unity were cited by 3 men and its appeal. one woman; two women thought it meant security; only one woman mentioned the The project for distributing sheep to poor project benefits as part of its ‘good effect on women, which has been implemented, was our lives’. All were aware that it had been less well understood, especially the criteria started one year previously. for distribution. In fact in practice the distribution seems not to have been transparent, All but two women were able to give an though no one suggested it was dishonest. account of the election process, in most Two women who described their families as cases especially the men, describing the role ‘middle’ and ‘poor’ had received sheep but of AKDN and government scrutiny. All had didn’t know why. The other 3, from ‘rich’, voted. No dissatisfaction was expressed and ‘middle’ and ‘poor’ families had not two men specifically said it was properly received sheep and did not know the conducted. ‘There was no offence and the criteria for distribution, except one knew elections went well.’ ‘It was a fair and free they were for women. election.’ ‘Up to now we don’t know, just some The women said there was no shura before: people got sheep and others didn’t.’ ‘We had problems but no one asked about (shura Deputy) that’. Two said the men discussed things but women knew nothing, ‘were blind’. One Two men of ‘middle’ income knew that the said problems were discussed individually sheep were for the poor – one had received and then referred to the district. One one and one hadn’t but thought he might described how the village had got assistance later. The Arab, who is clearly poor, had not for a water channel this way. received one ‘yet’. The teacher made no mention of sheep. His father said his family In response to this question the men (i.e the women) had received one. described how they set priorities now in the CDC (see below). The majority of men and women were confident the shura would go on to develop other projects. A woman member of the 9.5 The CDC today shura described it as: ‘Working to bring electricity and when that is finished they 9.5.1. Projects/ priorities work on another problem to solve, focussing on the problems of the village.’ “WACKUe will make many plans and will do it ourselves, we don't want The women are keen to start carpet manu- to be a burden in this country.” facture (which could be helped by the solar lighting). Extending the water channels for All the men insisted that the options were irrigation to increase agricultural yield is identified by them, then put to AKDN. Two also seen as important by men and women. described the listing on forms provided by It would require more funding than the NSP the FP. One hinted that there were other grant and may not benefit all equally, as not serious problems that were set aside in all own much land, but all the villagers par- favour of the solar project. (Four out of 5 ticipated in the last project. women mentioned water for agriculture as one of these.) They had so far not approached other funding agents, but assumed they could do One woman and one man said the villagers so. They have had experience in the past as a whole were consulted to identify the with Solidarity and AKDN assistance outside problems. The two shura members the NSP. ANNEX A5: described discussions in the shura to reach BAMYAN PROVINCE agreement on the priorities (one specifically

213 9.5.2 Functioning of the shura 9.6 Impact of NSP/CDC Four women and two men thought the CDC (after one year ) met once a week (or every 10 days). Two As one woman said, the CDC is only men (father and son) said the meeting was ‘recently established’ but it has clearly had a monthly but could be more frequent when significant impact on the community. The necessary (see 8. CDC above – the shura respondents’ remarks suggest that the main reports monthly to the whole population impact has been on the governance and but meets more frequently). It seems they social cohesion of the community. All the were all aware of the meetings taking place respondents thought the community was and agreed that everyone attended except more united as a result of the programme. for those living a long way away. Only the elderly widow claimed not to know about it. ‘They came together in happiness and sadness, and talking with each other On the subject of what it did and how, there to solve problems.’ was much less clarity. Two women couldn’t (woman) say, the others said it was about discussing projects or solving problems. The men also ‘People are more united and they feel mentioned problem solving and projects that we will have more credit to but also described the office holders the NGOs and government, but if (omitting the woman deputy, though one we are disunited we can do nothing. mentioned the women’s shura). So people are very close to each other now.’ In answer to the question, ‘Who leads your (man) community?’, two women said all the CDC members, one man implied the same ‘People are very united now. (others were not asked). The elderly widow And they are very calm now.’ gave the name of a man she thought was the (man) real leader (‘not the CDC’) but no one had voted for him because he is illiterate. Two Their capacity for inclusive governance has women thought the leader of the CDC was been greatly increased by the election of the leader but gave the name of the CDC representatives and the fact that it treasurer and another name, not of an office includes women. However, full participation holder. by the majority is hampered by illiteracy and lack of knowledge, especially amongst the 9.5.3 Financial management women. The majority rely on the Treasurer and [male] shura heads to manage on their They have contacted government and behalf. Two men said they had confidence in NGOs for assistance in the past but now feel the way the money was handled by the they have a legitimate body to represent Treasurer and the others implied the same. them. They also recognize the programme A woman shura member said the members as a sign that the government is supporting decided what to spend the money on, then them. ‘the Treasurer tells us how it has been spent’. One man said they relied on the ACKUAll of the above suggests a significant con- advice of AKDN ‘who helps us a lot because tribution to national solidarity at all levels. we are unfamiliar people and don't know anything about city issues.’ Two men and The economic impact of the programme is one woman were aware of the Block Grant not yet significant. The sheep distribution instalments. was intended as poverty alleviation but it is not clear how much it helped the very poor. The majority were aware of the origin of the The solar energy project will benefit all money to some degree. The teacher knew equally, but will not initially make an that the money came from World Bank to economic impact and has to be maintained government and was delivered through by contributions. There will be obvious AKDN. Three men and two women said it social value during the long winters, was government money delivered by AKDN. enabling school children to study, literacy Two women knew it was collected from the classes etc. and it may enable craft work in bank in Bamyan but were unsure if it was the home by women. However, it does not government or AKDN money. The other directly address the issue of improving man and woman indicated that they knew it livelihoods. THE PROVINCIAL was the government that supported them. FIELD SURVEY REPORTS

214 9.7 Confidence in the future The projects were not a totally new experience to the villagers, but the process of assuming responsibility for its management was clearly a new experience in which they still have a lot to learn. Nevertheless, as a result they feel confident to tackle further projects and these are likely to be economically significant: irrigation and carpet manu- facture. Water for irrigation, work and a clinic were the main needs mentioned.

The villagers are cautiously optimistic for the future:

‘“God knows better about the future” but I hope people's economy will develop in future.’ (man)

‘We hope that the government changes for better and we pray for its stability.’ (man)

‘People are satisfied with their today and are hopeful about the future.’ (man)

‘I don’t know but I am happy our village should be supported.’ (woman)

‘Yes, for example if something comes to the community then we will be happy.’ (woman) ACKU

ANNEX A5: BAMYAN PROVINCE

215 BAMYAN Supporting Photographs

Top & middle: Rebuilding houses in Shah Qadam, Shibar District, Bamyan Province

Bottom: Fields and pasture in Shah Qadam, Shibar District, Bamyan Province (All photos by Jawed Nadir) ACKU

THE PROVINCIAL FIELD SURVEY REPORTS

216 A6 Herat Province Provincial Field Research Findings

Timing and scope of the research ongoing, and 136 toilets. Fourth, under the A rapid survey was conducted in Herat by Microfinance Programme, it was stated that the research team working in Badghis1 from FINCA, BRAC and the Agha Khan 6–9 November. Interviews were conducted Foundation, had become important with DRRD, FP and OC. One CDC was inter- partners in successfully executing the viewed and the leaders of a community programme. Last, the Herat-Ghor Road was without a CDC. cleared from snow last winter through the Emergency Response Programme.

In Herat, the Community-led Development 1. Department of Rural Rehabilitation Department was established two and a half and Development (DRRD) years prior to the field research. Forty staff of the 41 staff positions were filled with 20 Meeting Profile others paid on a daily basis. Interviewee/s: Director of Directorate of Rural Rehabilitation and Development, and In terms of training and guidance from the Assistant in the NSP Section. The NSP NSP, staff claimed to have received only ori- Manager was unable to attend the interview entation on NSP in Kabul and training due to illness. sessions conducted by the FP and the OC for their staff and the CDCs.

1.1 Training and capacity of the DRRD It was found that the NSP “really enlight- The interviewees framed their experience ened people” since “they are more active by the six nationwide programmes: a) Road- now and are vigorously seeking contact with buildingACKU Programme (formerly called the government at all levels.” The respon- NEEP), b) National Solidarity Programme, c) dents argued that “95 per cent of the CDCs Water and Sanitation Programme, d) are fully in contact with the government.” Microfinance Programme, e) Emergency Response Programme and f) Area-based The question concerning the main indicator Development Programme. The DRRD in of success used for the FPs was not Herat also claimed to have implemented answered properly by the informants. projects streamlined under the above- However, it was noted that all the actors mentioned programmes. Five examples were working hard. In terms of capacity, the were provided: under the Area-based respondents felt that they did not have Development Programme, the offices of enough staff “to effectively and practically 1 Waheed Omer (Team Leader) DRRD and OC were rehabilitated and refur- be responsive to our duties. However, in with Malaiz Doud and bished; and through the Road-building terms of knowledge, we feel we have the Roydar Qutabuddin. Programme, 15 km of road was paved and capacity.” 20 engineering structures were undertaken. Third, under the Water and Sanitation The DRRD staff claimed that they had no Programme, 100 wells were dug and hand other operational problems; in particular, pumps installed in addition to 185 wells they noted that transportation was good because of assistance from the FP and OC.

217 1.2 Coordination with increased the knowledge of the people and other ministries helped in their capacity-building; gave the The DRRD staff concluded that coordina- communities a structure recognized by the tion was good with other government government; and that the CDCs were departments. For example, they noted that instrumental in solving problems and school construction projects could not be defusing conflicts in their communities. implemented unless there was prior Consequently, the OC had received many approval by the Department of Education; demands from the communities without and generator-related projects were always the NSP. coordinated with the Department of Energy to prevent a duplication of efforts. A noted The OC claimed that there were no specific exception was the building of clinics problems but emphasized that the selection through the NSP. It was alleged that the of areas should be done in a balanced way Department of Public Health had promised, to ensure equality in allocation of resources. yet failed, to provide staff and resources. The OC advocated greater cooperation and coordination among the government departments. 1.3 Community relations The DRRD’s relationship with the commu- The OC described his role as monitoring the nities was described as “good” and for projects, advising other stakeholders, and example, the director or deputy director of coordinating and bridge-building between the DRRD was always present at the inaugu- the FP and the government. ration of projects. The OC claimed to be not involved at all in Regarding the complaints procedure, the the management of the programme. DRRD staff stated that complaints were registered and either tackled by the DRRD alone, jointly by the DRRD, the FP and the 2.2 The capacity-building role OC, or sent to the MRRD in Kabul if higher of the OC authority was needed. Towards developing the institutional and individual staff capacities, the OC claimed to The respondents believed that the CDCs have organized a workshop and provided would remain permanent institutions as training in using computers and the long as there were projects or resources for Internet, and filing. The OC stated that the projects. They also felt that the CDCs would joint visits were useful in learning more enjoy more credibility if they were recog- about monitoring and evaluation. Overall, nized by all the government departments. he thought that there was a good process of learning.

1.4 The role and impact of NSP/CDC 2.2.1. The capacity of the DRRD The respondents affirmed that a “strong The OC believed that the DRRD of Herat foundation has been laid for national soli- was working well, especially compared to darity” since “[p]eople’s attitudes have been other provinces. It was noted that the NSP changed by the programme”, which has ACKUmanager was an experienced person who allowed people to be connected “with their had worked in the MRRD for 25 years. surrounding villages and throughout the province and the country”. It was argued that the possibility of transferring full management responsibility to the (M)RRD within the proposed timeframe depended on the magnitude of the NSP. The 2. The Provincial NSP need for more staff was deemed essential. Oversight Consultant (OC)

Interviewee/s: Provincial Head of OC 2.3 The supervisory role of the OC Venue: OC Office in Herat The OC noted that the eligibility criteria were explained to people to prevent the suggestion of projects outside of the 2.1 General comments on the criteria. strengths and weaknesses of the NSP The OC claimed that the NSP allowed the Management ensured that resources were THE PROVINCIAL government to reach out to the people; delivered to the community on time since it FIELD SURVEY REPORTS

218 was a joint responsibility. It was claimed that 3.1.6 Training and capacity-building the bank in Herat was not responsive to the in the communities/participation needs of the NSP and thus the resources They had organized leadership training and had been delayed in reaching the people. accounting and procurement training. The An average waiting time of two months was FP noted no specific problems concerning stated (for communities to receive illiteracy and the participation of marginal- necessary resources) but the OC added that ized groups. the timeframe varied from project to project. However, it was noted that men and women had separate meetings. It was also recognized that the influence of the “already influential people” had been lessened but 3. The Facilitating Partner could not be diminished overnight. Monthly community meetings were held to be a useful way to include marginalized groups. 3.1 Programme management 3.1.7 The FP’s capability 3.1.1 The role of FP in relation to the programme demands The FP described its role as “a bridge The FP had to increase its capacity by between the government and the people”, creating new Project Management Offices to facilitate the whole process. This involved (PMOs) in each district with NSP. The other capacity-building, by informing and empow- office in the field, the Field Management ering the people so they can decide best Office (FMO), was described as “partially how to use their local resources, and by busy with NSP”. Each PMO comprised a site providing technical assistance. engineer, two community workers (a man and a woman), a driver, a cook, and a guard. The FP believed the communities had a Key NSP staff received orientation on the good perception because the FP made them NSP in Kabul. They also had a male and a very aware of its function and role before female trainer in their FMO to provide the NSP, and then after by having meetings necessary training for other staff. There once a month. However, the FP acknowl- were also some workshops in Kabul and edged that the history of the FP in the com- Herat. munities was an important factor. Regarding NSP training and guidance for the 3.1.2 Working relations with the DRRD/OC implementation of the programme, the staff The working relations were described as recalled orientation in Herat, proposal good, once challenges were tackled. It was writing, procurement, and social organiza- claimed that the key was regular coordination. Each was described as useful and tion meetings with the DRRD and OC to necessary. allow a collective problem-solving process. The respondents recalled some initial Main skills needed were described as problems with the OC (delayed approvals) community mobilization, technical engi- but these were solved and have since main- neering, and general management skills. At tained constantACKU contact and joint visits. the time of research, there were no stated skill shortfalls that limited effectiveness. 3.1.3 Capacity of DRRD The respondents claimed that there were There were no problems noted with the some problems with the DRRD’s capacity high number of projects since they had initially but this was addressed successfully. increased their capacity accordingly. The coordination meetings were a good mechanism in this respect. It was also stated that there were no particular problems applying the eligibility 3.1.4 The impact of NSP on relations criteria. People were made aware of it between communities and government before the priorities were identified. No response

3.1.5 Coordination with other ministries 3.2 Project management and donors (With specific reference to the CDC visited) No response ANNEX A6: Staff allocated to this project: one engineer, HERAT PROVINCE and 4 social organizers (two male and two female).

219 The project was canal lining, some protec- 4. The CDC tion work and a bridge. It was identified by working with the people to identify their Meeting Profile needs and then make their Community Village and District: Development Plan (CDP). A total of 178 Hoftoi Sofla, Robat Sangi households were expected to use it, with Projects: Water/irrigation farmers as the direct beneficiaries and Interviewee/s: CDC Members labourers as the indirect beneficiaries. The Venue: Mosque of the village FP thought that everyone in the community would gain improvements in their liveli- 4.1.1 Legitimacy and acceptance of the CDC hoods as a result of this economic activity. The CDC claimed that the leaders consisted of the Qaria Dar (village in charge), Arbab The respondents did not know if the project Juma and the elders on the tribal council. would pull people in from other communi- The community got involved with the NSP ties. It was claimed that the monthly general when the district administrator called a public meetings had ensured inclusiveness meeting for representatives of all 150 by contributing to the widening of power villages in the district. Thirty villages were and influence. then selected based on a lottery.

There was no response from the FP con- The tribal council was the other community cerning the assessment of environmental group of leaders, which the CDC had almost factors. The quality of construction was con- replaced. Accordingly, the CDC believed trolled by visits to the project by the FP’s itself to have changed the way the engineers at least twice a week. It was community was governed. The members claimed that people could contact the FP emphasized that the monthly meetings when they had questions or problems, were very useful, where most of the which advised them to buy the most appro- decisions were made through consultations. priate material. The FP emphasized the Overall, the members believed that the CDC factor of maintenance and noted the had almost replaced other forms of gover- presence of a maintenance committee. The nance. wealthier residents also put aside some wheat every year to cover the maintenance 4.1.2 Functioning of the CDC costs. The community was expected to run in relation to the whole community the service in the long-term. The FP thought The CDC functioned using the weekly the facility/service was sustainable but meeting and sometimes met twice a week in admitted that they could not guarantee how addition to using emergency meetings. The long the water source would last. There was CDC also claimed to be present in the no direct response to the question concern- monthly public meetings. There were eight ing the long-term viability of the economic elected and active members. activity. The CDC activities were documented using The period of time between identification of the register to record all the decisions and the project and the start of implementation other important points. was 5 months. The FP believed it would take ACKU another two months to complete the In prioritising needs, five main areas or project. It was claimed that the FP did not potential projects were identified: irriga- cause delays. The informants stated that the tion/water, toilets, generator, roads, carpet- design came from experienced FP weaving and tailoring. The CDC recalled designers. This was then checked by their that everyone (in the community) agreed designer at their FMO in addition to general upon irrigation/water as the most checks by all the FP staff. Safety measures important. In dealing with different involved rechecking the completed design opinions, the decision of the majority was by experts. The FP claimed that the people used after trying to find consensus and with consulted them before procuring material people listening to elders. The members and equipment. claimed there was no disagreement.

The CDC supervised the use of skilled and unskilled labour in the village. It was a full- time job for the community. The main potential benefit for the community was THE PROVINCIAL water for irrigation and the creation of FIELD SURVEY REPORTS

220 employment. Towards maintenance, the tive governance and community develop- CDC stated that there was a committee ment capacity. assigned to look after the facility after the completion of a project. They had good experience in this respect from looking after a school building and bridge. The CDC 5. Leaders of a community was also present to monitor the project at without a CDC all times. Meeting Profile 4.1.3 Projects Village and District: Yaka Dokan, The CDC had not initiated further projects Interviewee/s: Elders of the village or other responsibilities in the community. Venue: A house in the village

4.1.4 Relationship between the CDC and government 5.1 Existing governance The project was inaugurated by the director The village had a council of 10–15 persons. of the DRRD in the presence of a represen- The Qaria Dar (village in charge) was its tative from the district administration. They contact and liaison with the government. stated that they were proud of the government and that security, reconstruction and To wards meeting needs, hand pumps for cooperation with the government was in drinking water were installed by DACAAR. their interest. Furthermore, the CDC The leaders claimed that there was no clinic members believed that the government in the village and they had to go Herat, Tor listened to them. However, it was recom- Ghondi or Robat Sangi (25 km) to receive mended that sending more representatives medical services. Other assistance besides to the communities would improve the that from DACAAR included the rehabilita- partnership. When there was a complaint, tion of the school building by USAID. The the CDC stated that they contacted the FP. village council members thought it was very useful to be partnered with the govern- 4.1.5 Relationship between ment. the CDC and the FP The relationship was described as positive The leaders knew the main details of the as the FP was familiar with the local context, NSP and supported the creation of a CDC in had bridged the community/government their community. relationship and provided technical assistance.

The training on functioning procedures, procurement and accounting from the FP was described as very useful and necessary. Technical support was also provided by the FP in addition to monitoring and evaluation of the projects.ACKU 4.1.6 The capacity of the CDC The CDC stated that they had not experienced any problems implementing the project.

There was skilled and unskilled labour in the community and the CDC was able to design the structure themselves with the support of the FP. A construction firm had demanded Afs 90,000 to design the structure.

There was no response noted regarding the maintenance of the structure.

ANNEX A6: In general the CDC had gone a long way to HERAT PROVINCE achieving the NSP objectives of representa-

221 ACKU

THE PROVINCIAL FIELD SURVEY REPORTS

222 A7 Kabul Province Provincial Field Research Findings

1. Timing and scope of the research education, at least for men. They have traditionally supplied agricultural produce, espe- The research team1 worked in Kabul from cially fruit and vegetables, to the capital as 24–26 October with the NSP management well as developing various manufactures teams (DRRD, OC, FP) and from 7–12 such as pottery, brick-making and carpet November in the rural districts of Estalef weaving and service industry such as and Kalakan. In addition the team leader tourism. They also had access to urban had visited four completed CDC projects in employment, including professional jobs. Shakadara district with the Engineering These prosperous communities suffered Consultant on 15 October. high levels of destruction of property and infrastructure in the war and much of the Persons interviewed: area was abandoned during the Taliban rule. The Provincial Governor The returning population therefore has The Director of DRRD quite a high level of human capital in terms The DRRD NSP Administrator and of education, skills and former business Engineer experience, but little or nothing in terms of The NSP OC consultant resources or functioning infrastructure. The The Director and Management Team of links to the city remain important. Despite SDF(NSP FP) the difficulties, marketing of produce has The SDF District NSP staff responsible resumed. Many from the nearer districts for Estalef work in the city; some of the displaced The CDC of Godara (Estalef District) remain there because they cannot rebuild Representatives of 10 households in their homes and livelihoods in the villages. Godara The ACKUDistrict Governor of Kalakan and So far 7 districts have been covered by the Council of Elders NSP and have CDCs in all communities. The Representatives of 10 households in other districts still have tribal/non-elected Kalakan Centre shuras. CDCs of Aziz Uddin, Salakhail, Taj Mohammed and Ghaza, Shakadara District. 3. The government

The team was introduced to the Provincial 2. General observations on the Governor by the DRRD Director and 1 Margaret Chard (Team Leader) conditions in the rural districts Oversight Consultant, who accompanied with Marina Nawabi and them to his office. He made clear that he is Jawed Nader. The field research was carried out in the generally favourable to NSP and rural districts to the north of Kabul. Their commended the Minister responsible. proximity to the capital meant that before the war they were prosperous and compar- As he was recently transferred from atively well-developed, including access to Nangahar he based his assessment of NSP

223 on his experiences there, and raised the UNOPS (to which they forward requests following issues that he felt need to be from communities for road construction), addressed. WATSAN (UNICEF) and NEEP. They are also responsible for a survey of the reintegrated 1. There are currently conflicting models and cooperate with the Micro-Finance for community and district governance: programme, where they have one member traditional shuras of elders, CDC and of staff working, and monitor ‘a rough proposals for elected district councils. sample’ of families involved in the scheme. This has to be resolved in a way that creates one inclusive structure. 4.2 Experience of community 2. Project sustainability is not given development with the NSP enough consideration. The NSP department/activities began in 2003. They currently work in 7 districts with 3. The present management of NSP 324 projects. The Director himself has only through MRRD, OC and FP partnership been in post for 6 months but is clearly is expensive and has a lot of overheads. closely involved with NSP and strongly in Capacity-building of Afghan profession- favour of it. als and government institutions is therefore a priority. He and his staff (involved from the start of the programme) carry out direct supervision and promotion in coordination with the OC and FP, and have direct contact with 4. MRRD provincial and district the CDC when they initiate projects ‘to talk programme management about honesty, maintenance of the project and other issues’. The Director of DRRD was interviewed first, followed by a separate interview with the From his meetings with other provincial two NSP staff. DRRD and MRRD staff at the national CDC meeting, the Director realized that in Kabul they have avoided some of the problems of 4.1 Kabul DRRD contradictions between traditional and CDC The DRRD for Kabul has 28 established staff shura described by the Governor. He attrib- as well as contracted staff. This includes one uted this to the preparation work carried construction engineer, two water supply out by the FP with the involvement of the engineers and one hygiene specialist. There district governor and, if necessary, interven- are only two full-time NSP staff (an engineer tion from DRRD so that the problems are and an administrator). resolved before the CDC is created.

There are two vehicles; one for the Director Both the Director and his staff attributed and one used by the OC. The Director’s fuel the success of the FP in establishing and allowance only lasts half the month, after facilitating the CDC to their preparatory which he relies on lifts to carry out supervi- peacebuilding work, which prepares the sion. ACKUcommunity to receive the programme. The satisfaction of the people with the work of The office space available for the DRRD and the FP, their evident hard work and honesty, including the OC is very restricted. There is are the criteria by which they judge their for example no separate meeting room success. (after meeting the director in his office, he had another meeting and we had to Both Director and staff thought that there conduct other interviews in the office his was now, as a result of NSP, a strong rela- deputy shares with another member of tionship and regular meetings between the staff). All the administrative and secretarial communities and provincial and district staff work in one room. The OC has one government. Other relationships have also small office. improved. Tribal and even family tensions have been solved at the CDC level. ‘In a DRRD staff need training in computer skills village where there had been seven murders and English language to be able to deal with (a clan feud) and the governor could not aid projects. solve it, the CDC solved the problem.’ (Both of these social gains were emphasized by THE PROVINCIAL Apart from NSP the DRRD is also involved the communities themselves.) FIELD SURVEY REPORTS with three construction programmes:

224 The CDCs have also developed the capacity ment and enthusiasm for NSP seemed to approach other ministries and organiza- undimmed by these difficulties, perhaps tions to seek funding for their projects. The because of the relationship they have with DRRD issues them with certificates on com- the CDC, where they were confident they pletion of NSP projects that they can would always be ‘kindly received’. present. They also negotiate top-up funding for projects that exceed the NSP budget 4.3.1 Constraints due to the (this capacity was evident in several of the NSP procedures CDCs visited by the research team). In general the NSP staff thought the communities did not have great problems in implementing projects, but there are two 4.3 Training and capacity of the DRRD aspects of the NSP budget arrangements The Director reported that 5 of his staff that cause frustration. First, there is a con- (those responsible for NSP and 3 others) tradiction in calculating the budget for a had received training in the NSP village on the basis of US $200 per family, programme. He considered that in his first 6 but then putting a cap on the total budget of months he had had two ‘training experi- US $60,000. Larger communities quickly ences’: the national meeting of all the CDC find out that they are getting less per family representatives and the exchange of ideas than the others and complain. with the DRRD representatives attending; a follow-up meeting with the minister. The payment of the Block Grant in three instalments, given the limited administrative The two programme staff described two-day capacity of the central OC, creates delays workshops provided by GTZ (OC) on which can be prolonged even after the community mobilization/understanding money arrives by the onset of winter. society and on supervision of the NSP. They Projects are consequently left incomplete also said they had GTZ working with them for months. This accounts for ’40 per cent of (i.e. in a capacity-building role as later the problems’ with implementation. described by the OC himself). Although they did not mention fieldwork experience 4.3.2 Coordination with other ministries with the FP (mentioned by SDF) they clearly As regards coordination with other min- had detailed knowledge of how the FP istries, both the Director and the NSP staff works in the community, and based their said that in general it was good. The favourable assessment of the FP on the way Director described joint projects in edu- they approach the communities. cation and agriculture, sharing of transport and sectoral coordination meetings. The The Director assessed that with the capacity operational staff described discussions with the staff now has the DRRD can continue to the Ministry of Water and Sanitation to facil- complete 70–80 per cent of the work but itate implementation of water projects they are held back by the lack of resources, through NSP and applying the Ministry of detailed above. Education standards. In most cases delays in approving plans, which could be up to 4 The NSP staff were also confident in their months, seem to be bureaucratic. However, professionalACKU capacity, ‘We have successfully they did have problems with the Ministry of implemented 108 projects through the FP Energy over a request to link communities and from a technical point of view we have that set up their own network to the grid (in been successful compared to other NGOs.’ this case they seem not to have consulted However they thought that even the the Ministry before setting up the projects). present combined DRRD/OC team was not sufficient to monitor the existing 324 4.3.3 Community relations projects, never mind the further 608 just As described above, the DRRD staff maintain passed. positive relations with the CDC communities. This in turn enables them if necessary They also pointed out that they do the same to intervene to resolve misunderstandings. work as colleagues contracted by the OC There had only been two registered com- (GTZ) on more than 5 times their salary. ‘In plaints about the implementation of the three years we have not received either programme. Both were cases of communi- monetary or moral support.’ They later said ties that became suspicious about the the researchers were the first to enquire handling of their project budget. The DRRD ANNEX A7: about how they are getting on with the carried out investigations and were able to KABUL PROVINCE programme. Nevertheless, their commit- demonstrate to the villagers that everything had been done correctly.

225 Two lessons can be learnt from these incorporated in the constitution. The oper- incidents. First that there is growing trust in ational staff also thought that there needed the DRRD as impartial public servants. to be some kind of payment to office Second that there is still difficulty in estab- holders of the CDC to reimburse expenses lishing transparency and accountability and compensate for taking time off from within an uneducated and often socially work to support their families. marginalized population that has had good reason in the past to doubt the honesty of its leaders. 4.5 Additional comments from the interviewees on the future of NSP The household survey in Godara (see 9. The Director and staff made strong pleas for below) also showed how poorer and less NSP to continue so that the government educated members of the community, who could sustain its relationship with the lacked the capacity to scrutinize or under- people through the CDC. stand accounts, were inclined to be suspicious of the financial management of the The operational staff also stressed that CDC. The deep distrust of the council ‘MRRD has the leading role in implementing leaders by the poor in Kalakan where there NSP – without it the OC and the FP could is no CDC further illustrates this point (see not implement the programme.’ By this 10.). they were once again drawing attention to the under-resourcing of the permanent institution compared to the supporting 4.4 The role and impact of NSP/CDC agencies, rather than suggesting that DRRD Both the Director and the operational staff could at this stage run the programme thought that the NSP had made an without facilitation. important contribution to national solidarity and that this is its main role. Both described the efforts they made in contacting the community to explain the roles of govern- 5. The provincial NSP Oversight ment/MRRD and the NSP and they were Consultant (OC) sure the communities understand that it is a government programme. They also stressed The Oversight Consultant was interviewed the importance of the CDC in building soli- on his own (the other staff had already left darity within communities between work by the time the researchers met with different ethnic groups: him, as it was Ramadan). In addition to the two DRRD staff, the team consists of 6 men ‘It is not important how many and two women: team leader (himself), one projects are implemented, engineer, two monitors, one documenta- the important point is solidarity tion clerk, two guards and a cleaner. within the community about selecting the project.’ (NSP/DRRD engineer) 5.1 General comments on the strengths and weaknesses of the NSP Assessing the impact of the programme in ACKUHe said the programme had two sides: the building the CDC capacity for project man- physical and the social. In Kabul they had agement, the operational staff thought been successful on both sides. The evidence about 50 per cent would already be able to for that was that the armed men had put function in some way if FP support was aside their weapons in order to participate withdrawn, because they had gained basic in the projects. There is now solidarity knowledge about projects; but in reality amongst the people as they cooperate to they still need technical assistance, espe- keep the programme, even between some cially with proposal writing, and the FP that have been at war with each other for 70 needs to continue to give support to the or 80 years. CDC for the present. This was achieved as a result of the two The Director and staff saw the CDC as sides of the programme. In the beginning effective institutions for community gover- people didn’t believe the government could nance and thought that they needed to be do what it said, or they thought NSP was just established on a more permanent footing. another NGO. Once the money was Logically, if there are now to be elected delivered they began to trust in the govern- THE PROVINCIAL district shura, the elected CDC should be ment. Then there were both technical and FIELD SURVEY REPORTS

226 social problems to overcome to implement documentation and project proposals the projects. The armed men had little before forwarding to central office. As the understanding of the social work involved. number of projects and proposals has However, the strength of the programme is increased, he felt that the level of supervi- the participatory work in the community sion of each project has decreased and is combined with strong support for the not now as good as it should be. projects. This is what helps understanding and cooperation. In Kabul, for example, He and one other colleague are responsible they had avoided the problem raised by the for checking the proposals before forward- Governor of conflict between different ing them to central office. Often, he resorts types of shura. to taking bundles of proposals home to work on in the evenings in order to keep His main concern was with the pace of things moving. expansion. The present OC/DRRD team is already finding it difficult to give daily super- Similarly, the applications for the payment vision to the projects as they feel they of Block Grant instalments have to be should, and they are now facing the processed within about two days and sent prospect of expansion to more districts. off. Getting the Block Grant allocated takes about 15 days and a further 5 days in central office. In his experience the NSP is efficient 5.2 The capacity-building role in processing the payments, ‘but the banks of the OC are not’. He thought they were playing a successful role in building both the capacity of the DRRD, through their joint supervision and 5.4 Additional comments on the monitoring of the projects, and helping the future of the NSP communities to ‘be professional and control He thought that the number of staff in the and continue their work’. He once again engineering team needed to be increased pointed out that gunmen had produced due to the number of projects. So far they good projects as participating stakeholders. are not behind with the work because they take work home, but with the planned The management team (‘we’) provide the expansion it will become impossible to CDC with the advice they need and he has maintain this standard. transferred all he knows to the DRRD staff (he did not at any point refer directly to the The programme should continue and be role of the FP as the DRRD staff did, but made sustainable because it has a positive clearly it is they who make the direct input effect on people and communities, but to the community under the supervision of nothing is planned beyond the three years. the OC). The CDC should be given legitimacy under These claims were vindicated by the level of the constitution. They are elected and competence and understanding shown by therefore the real representatives of the both DRRD staff and the CDC’s visited, people, and now that they have developed especiallyACKU those which had already success- the capacity to participate in the recon- fully completed projects. It was clear that he struction of the country they are the active regarded capacity-building as central to his members of those communities. role as oversight consultant, and as the core activity of the programme as a whole.

5.2.1 The capacity of the RRD 6. The facilitating partner: Sanayee From the point of view of professional Development Foundation (SDF) capacity, he considered the DRRD is now SDF is an Afghan NGO with a history of capable of running the programme without community development work in Kabul. It an OC, but they do not have enough staff in is the only FP working in the Province and relation to the number of projects. has facilitated the NSP in 7 districts to the north of the city.

5.3 The supervisory role of the OC He saw the supervision as consisting of 6.1 The programme management ANNEX A7: regular visits in the field (the engineers are The research team interviewed the senior KABUL PROVINCE out four days a week) and scrutiny of the management team of SDF: the Executive

227 Director, the General Coordinator, the 6.1.4 The programme structure and Project Development Manager and the NSP relations between communities Manager. and government They make a particular effort to portray the 6.1.1 The role of FP role of government in the NSP to the com- In response to this question several munities and explain their role as FP. They members of the management team immedi- do this in the introduction to NSP and again ately mentioned ‘mobilization’ and ‘facilita- at the time of the elections. They said the tion of the whole process’. The Executive CDC thank the MRRD, SDF and the World Director referred to ‘advocacy, from people Bank for the programme. In fact all the CDC to government and from government to (see 8 below) visited did say exactly that, so people’ and ‘capacity-building’. The others they seem to have got the message across! spoke of the hands-on processes of intro- (More recently, since the funding support ducing the NSP, establishing the CDC, has diversified they talk of donors, not just assisting them to identify problems, develop World Bank.) technical projects and even fill in the necessary forms. They thought that the communities were probably not aware of the OC’s role as They all saw it as their role to promote the separate from government. In their weekly NSP and convince the communities to par- monitoring visits they check with the ticipate. In this regard, it was hard to win people that the FP is working according to the trust of the communities in the first year the manual, so presumably it is seen as gov- until they began to see visible changes as a ernment supervision (and in fact DRRD staff result of the projects. Their experience are part of the OC team, see 5 above). therefore confirms the observation of the OC that the social developments of the They did think however, that the govern- programme are achieved through participa- ment is reluctant to give the FP credit for tion in the projects. their role in the programme. For example when 5 SDF staff working on the pro- 6.1.2 Working relations with the DRRD/OC gramme were killed they were referred to as They described very good working relations government employees. ‘The government with the DRRD but also with MRRD, since it thinks, when hiring the FP, they are our is very close and they can at times deal God.’ direct with them. The same applies to the provincial and main OC offices. Clearly this The OC in his interview certainly did not is a big advantage for the NSP management mention the FP, but both the DRRD Director in Kabul, since they can jointly sort out any and staff were very appreciative. As the SDF difficulties on the spot. staff recognized, NGOs have a very bad reputation, so it may be at the national propa- The 3 management bodies basically main- ganda level the government seeks to tain close contact and support each other. distance itself from them. ‘We think OC, DRRD and SDF are the same team.’ For example, they always contact Nevertheless, as a result of the NSP DRRD to take part in opening and closing ACKUprogramme, their explanations and the ceremonies of the projects, but also frequent visits of DRRD and MRRD as well as sometimes ask them to help in solving OC personnel, SDF sees that the communi- problems in the CDC (as described by the ties feel free to approach even the Minister DRRD Director). with their problems. This is in fact the first time in Afghan history that communities are As a result they have not experienced any of taking the initiative to contact ministries. the problems they have heard of in other Before everything came from the top down. provinces and have been commended by NSP has managed to reach even the most the DRRD for their cooperation. remote communities that government never reached before. 6.1.3 Capacity of DRRD They think the DRRD works very well. The 6.1.5 Coordination with fact that the two NSP staff have had experi- other ministries and donors ence of working with SDF provided them They are also encouraged by SDF to contact with good training for the programme, other ministries and donors and given infor- which was a very new concept for them. mation about them. Some top-up proposals THE PROVINCIAL They saw this as their contribution to DRRD or additional projects are linked to SDF/NSP FIELD SURVEY REPORTS capacity-building.

228 projects, as the researchers verified in the tangible improvements in their economic communities visited. conditions. Those that mentioned improved governance saw it as a means to However, there has also been a negative ensure that economic benefits reach the reaction at the top level of government. poor (10). They reckoned that about 70 per cent of the ministries are against NSP and the President Looking to the future the Executive Director has appeared ignorant of its progress. They said that NSP is a movement, not a project. specifically said that the Education and There are high expectations of it, though Health Ministries sometimes obstruct the this optimism varies from province to progress of NSP. This uncompromising province. It is likely to become a legal opinion is in contrast to the DRRD state- system of governance. They believe that the ments, both in Kabul and Bamyan, that in government is considering this, which is general coordination is good (see 4.3.3). why they have delayed the district elections, so they can incorporate the CDCs in the 6.1.6 Views on the impact district councils. and future of NSP and the CDC The management team members were 6.1.7 Training and capacity-building concerned that the NSP programme should in the communities continue because of its role in developing SDF has a Capacity-building Department community governance. They emphasized which designs and develops training and that the most important gains are not capacity-building for the communities. NSP economic but social, and suggested that the staff are then trained in these methods communities recognize this. For example, before working with the communities. They as the CDC develop, there are fewer are fortunate, in Kabul, in being able to demands for payment for CDC work, not recruit staff with at least secondary only because they realize that they can’t be education, and often with relevant experi- paid, but because they begin to value the ence. authority and prestige they hold in their community, and take pride in the projects The capacity-building aspect of NSP is seen and development. There is now healthy as the most important: ‘We believe every- democratic competition for being head of a thing we do with them is a form of capacity- CDC. building.’ It focusses on two areas: participatory governance and being able to The NSP Manager said that they value the manage their projects. structure rather than the money because by changing the traditional leadership they Training and capacity-building are first of all have been able to resolve their conflicts essential to the process of establishing the within the community. CDC. Peacebuilding, based on Islamic principles, is key to opening the way for the The General Coordinator, however, programme, and this aspect of SDF’s cautioned that withdrawal of funding to approach was referred to by all the other support projects at this stage would put stakeholders, from DRRD to the CDC those gainsACKU in jeopardy. He clearly shared members and householders. It seems clear the view of the OC that the social gains are that this groundwork is an important factor achieved through the participation in in the success of SDF’s work. Problem projects to improve the living conditions of analysis, using a problem tree to discuss the the communities. communities’ needs and project options, is another capacity-building exercise that was This discussion closely reflects the commended in Godara and some of the responses obtained by the researchers in other CDCs. the communities. CDC members in all of the communities visited by the researchers SDF then gives training in all aspects of CDC stressed that the most important gains from functions, record keeping, book keeping NSP were in establishing inclusive comm- and project management as outlined in the unity governance (see 8). Householders in Operational Manual. These functional Godara also described increased social unity aspects had clearly been very thoroughly as the primary gain but cited the material transferred to the CDC members. All the benefits as evidence of the success of the CDC visited had a good understanding of ANNEX A7: CDC (9). Householders in Kalakan, not yet the functions of the CDC, the NSP KABUL PROVINCE involved in NSP, were looking primarily for programme and the management of their

229 projects. Documentation of their activities In Kabul at least, after initial scepticism, the and financial transactions was also of a very men have accepted the concept, especially high standard. The process was no doubt when they saw the money coming in and helped by the good standard of education projects being implemented. This seems to of the CDC members compared to other be further evidence of the importance of areas of the country (see 8). the projects as vehicles for promoting social change. SDF has added other training programmes to the basic NSP requirements, which they 6.1.9 The FP’s capability in relation think are relevant and help the CDC to to the programme demands function effectively. These include: SDF recruited 120 new staff and redeployed education, health, literacy, Islamic existing staff in order to take on the NSP education and human rights awareness. work. There was a core team that was able Again it was clear from the respondents in to develop the programme, drawing on the communities that they had been expertise from other projects, but they exposed to these courses and found them needed to develop their capacity. For relevant. example, they had to carry out intensive training on community mobilization. The main problems experienced in the training programmes are due to lack of If the NSP were wound up, they would time, especially when introducing new ideas struggle to retain all their staff; they would and skills to the less educated. The NSP inevitably have to shed some. However, timeframe is very short for the FP to achieve they felt that in Kabul, with the expertise their objectives. The community members and experience they had acquired in NSP, also have limited time as they have their they would be likely to find better jobs than own business to attend to. So although they before they were recruited. think, with justification, that their training programmes have been very successful, If, as is happening, the NSP expands and the they have not been able to carry out the number of projects continues to increase, whole of their training plan. they will simply hire and train more social organizers. They don’t envisage any 6.1.8 Participation problems in that area. However, there is The purpose of the peacebuilding likely to be a problem finding engineers. At workshops as the first step in establishing present they have two fully qualified the CDC is to ensure that all sections of the engineers and for the next phase they plan community participate from the start. The to recruit three specialist engineers for field staff and CDC members interviewed, water, sanitation and construction. for example, explained that the former traditional council leaders are generally 6.1.10 Comments on the Operational included in the CDC in some way (on com- Manual and changes to the guidelines mittees etc.), if not actually elected. The manual as such is a clear working Occasionally a CDC head proves unaccept- document. For example, the eligibility able to one part of the community and the criteria are clear and can be easily explained conflict has to be resolved in another ACKUto the communities, who then work to workshop. them.

Participation of women However, it is the changes to the manual The initial NSP concept was to have mixed that cause problems, because work is CDC, but it didn’t work. They now have initiated on the basis of guidelines that are women’s CDC with their own projects, but then altered or cancelled. For example, SDF there is cooperation between the two. The did a lot of work preparing communities for women are assisted by the men’s CDC on income generation projects that were then the logistics, such as purchase of goods stopped because the World Bank was (women in these communities have no unsure of their sustainability. This created experience of business dealing outside the great disappointment. home; see Godara women’s CDC section 8). Women’s CDC for their part often con- In the beginning there was just one project tribute financially to the projects of general per community, but now where not all the community benefit run by the men (see money is used in a first project, a second is again Godara women’s CDC). started. There are in addition women’s THE PROVINCIAL projects. This amounts to a lot of extra FIELD SURVEY REPORTS proposal writing for the FP staff and CDC.

230 There was a sense of grievance in these concerns voiced by householders and CDC comments, not so much at the changes to the researchers. It therefore seems likely themselves, but that it was not done in a that they are genuine community choices. consultative way that took account of the Road projects and canal cleaning projects implications for the FP and the communi- are directed at restoring or increasing the ties. returns from growing and marketing fruit, which is the core agricultural activity. The women’s crockery project was the idea of 6.2 Management at district women involved in catering for community and project level events, who constantly had to borrow Following the interview with the senior crockery. Now, when their set is not in use management team, the researchers met they hire it out to raise money for other with staff responsible for the programme in projects. Estalef District: the district organizer, a female social organizer and two supervisors. SDF staff do however encourage the community to choose and design the One of the engineers from the programme projects to include all sections of the was also asked to respond to a short ques- community, with special attention being tionnaire framed by the Engineering paid to vulnerable groups (widows and the Consultant. The responses are discussed in disabled). SDF do not try to make any the engineering report. specific political, economic or sociological analysis themselves, but rely on the fact that 6.2.1 Staff capacity-building and training the community is fully aware of its own The field staff thought that the main social divisions and therefore who is vulner- requirements for the job were: all except able or excluded. This policy follows NSP the drivers and guards should have a guidelines and there was evidence in the secondary school certificate (baccalaure- field of efforts by the CDC to implement it ate); staff need a good understanding of the (see 8). society and should know and respect the culture and traditions of the communities; The field staff explained that it was by using they should have good communication the problem tree method of analysis that skills, including knowing the local dialect or they were able to work with uneducated at least understanding it; conflict resolution people with diverse interests and points of skills are also necessary. view, and make it possible for them to make these collective decisions. In fact the partic- Before going to work in the field they ipants are amazed at what they can achieve received orientation on the NSP concept in these sessions and generally content with and training in community mobilization, the result (this method was mentioned communication, problem analysis, conflict favourably by the community in Godara, see resolution and peacebuilding. Of these, 8). community mobilization and conflict resolution had proved most useful. For example, While the projects do not directly involve they have been called on by communities to other communities, the projects attract resolveACKU conflicts because their expertise is attention from neighbours and, as in the known. case of crockery, the CDC is able to sell services to them (the householders in So far they have not felt any lack of skill for Kalakan for example were aware of the the job. projects in neighbouring districts, see 10).

6.2.2 Project relevance, sustainability When it comes to planning the projects, and efficiency SDF technical support is necessary, especially for the more technical projects and Relevance when it comes to filling in the forms. The projects being implemented in Estalef However, the CDC still plan in a participa- are: road construction; animal husbandry; tory way. canal cleaning; water supply and development of springs, and the purchase of Sustainability crockery for use and hire for festivals, The quality (and therefore durability) of the weddings etc. projects in terms of design is assured by the ANNEX A7: FP and OC engineers, and implementation KABUL PROVINCE The range of these projects reflects the is closely controlled by SDF engineers, OC

231 monitors and the CDC representatives, to Economic conditions ensure that the right quality of materials are The majority of the population is poor. used. They also ensure that all projects During the Taliban rule 90 per cent of their comply with national development plans. houses were burnt as well as their grape farms, which were a main source of liveli- The sustainability of the projects is of hood. The Taliban destroyed the grape course dependent on this good design as farms because they were thought to provide well as the quality of construction. The SDF cover for Northern Alliance forces. staff also ensure that the CDC plan how they are going to maintain the facilities, by The main sources of livelihood are now setting up monitoring committees and by pottery (the most famous in Afghanistan), income generation (sale of services for farming, and working on NSP projects. A example) to cover the expense. There was few well-to-do people have businesses in evidence of these measures being taken in Kabul City. the CDC visited (see engineering report). Staff The relevance and acceptability of the SDF has 28 staff working in Estalef: two projects to community needs must also be a engineers and two engineering monitors; 13 factor for sustaining motivation of the facilitators (3 women, 10 men); 4 social community to maintain the facilities. organisers (one woman, 3 men); one peacebuilding trainer; one NSP trainer; 3 drivers; Efficiency or effectiveness? 2 guards. The SDF staff thought that judging the FP performance (or efficiency) on the quantity The CDC of projects completed does not value their The average CDC has 320–330 families. quality. On this issue it can be said that on There are 429 members of male councils quality issues such as relevance/utility to the and 257 members of female councils. community, appropriate design and sustainability, the SDF projects observed scored Projects highly. Note also the DRRD and OC So far, Afs 10,011,599 (US $206,000) have concerns about maintaining adequate been spent, the bulk of it (Afs 9,561,000) on supervision of an increased number of general projects. See 6.2.2 above for the projects. range of project types.

They thought that centralization of On the basis of this profile and the sample decision-making on project proposals and design, Godara was chosen as the CDC the dispersal of the second and third Block community to visit (see 8 below). Grant instalments costs too much time and effort. It would be more efficient to decen- tralize the decision-making authority. 7. General comments on the 6.2.3 District profile of Estalef management of NSP in Kabul (Information provided by the field staff) Population: The total population is ACKU7.1 Successful implementation 45,604 The management of the NSP in Karbul is The total families (couples and their well coordinated between the three imple- children) 10,374 menting agencies, who basically work as a The average size of a household single team. In particular there has been a (i.e. comprising more than one ‘family’ conscious effort on the part of the OC and or several generations) is 15 also the FP to build the capacity of the The accepted age of adulthood is DRRD staff. All parties share a common 17 for boys, though they normally do understanding and enthusiasm for the NSP not marry until aged 25–30. Girls are aims and concept and this includes the considered adult and expected to marry Director of DRRD, who is actively involved. at 15. The NSP programme in Kabul also benefits Vulnerable people identified are widows from the practical and political support of (689) and the disabled (308). (The District Governors and has the endorse- figures are low, if compared to the ment of the recently transferred Provincial numbers in Godara, so perhaps Governor. This unified approach has clearly mean those widows or disabled not resulted in successful implementation, THE PROVINCIAL adequately supported by family, which has achieved tangible results in terms FIELD SURVEY REPORTS i.e. vulnerable?).

232 of both governance and community devel- the institutional arrangements do generate opment. Perhaps the most notable success areas of resentment and potential conflict. has been to include, rather than confront, The gap in resources and pay between the the existing leadership. DRRD and the OC is not sustainable and, as both parties acknowledge, raises the The FP (SDF) has played a significant role in question of how the DRRD can eventually this respect, by its use of peacebuilding and take over the management roles of the OC. problem analysis methodologies, as well as There is also some resentment on the part its understanding (as a national NGO) of the of the FP that, for political reasons, it is not culture and moral beliefs of the communi- given credit by government for the essential ties. This has enabled it to work with all the role it plays in the programme. different interest groups to ensure their inclusion. All parties noted the threat posed by over hasty expansion without adequate re- The quality of the projects in terms of their sources. SDF were afraid it would lead to design, relevance and construction, as well loss of quality in the work, both in the as their sustainability in terms of mainte- groundwork for establishing the CDC and in nance, is also due to the quality of the work the projects. The OC and DRRD were afraid by SDF combined with the active supervi- they simply wouldn’t have the time and staff sion by OC and DRRD. As a result commu- capacity to meet increased demand. nities have been able to acquire the capacity However, having said that, the political to develop new projects and independently imperative to expand and include other seek out funding. High standards of imple- districts was evident in the discussions with mentation, supervision and monitoring are the Governor, elders and householders in evident in the end product: a CDC with Kalakan, the community without a CDC. completed projects going on to develop Also, if, as all advocate, the CDC becomes other activities. the constitutional organ of governance at community level, all communities will have to be included. The threats inherent in this 7.2 Limitations dilemma are: failure to expand is likely to It has to be recognized that this success cause discontent; expanding at a pace that story is partly due to certain advantages does not consolidate the governance of the enjoyed by this Province compared to more community or guarantee the relevance and remote areas, as SDF acknowledged. They sustainability of projects will also cause dis- are able to recruit well-educated personnel, illusion. Both scenarios are potentially which makes their training easier. In destabilising. addition, there are many educated individuals in the communities capable of serving effectively on the CDC. The gaps in this scenario are in the participation of women 8. The CDCs and the less advantaged members of the The research team worked in Godara with communities. SDF has comparatively few the men’s and women’s shura and female staff and the women in the commu- conducted a household survey. The team nities doACKU not have anything like the educa- leader had previously visited 4 CDC in tional level of their menfolk. There are also Shakadara district with the Engineering other sectors of the community that do not Consultant and was able to record some take an active part in decision-making due comparative observations. to poverty, lack of education or disability. The consolidation of the CDC as democratic institutions still requires more time in which 8.1 Godara, Estalef to build the capacity of women and the dis- The sample design required the team to advantaged to have a meaningful participa- research communities at different stages of tion. As it is, SDF feels that the training and involvement with NSP. Having observed 4 capacity-building programmes that they see CDC in Kabul with completed projects as necessary are being cut short by the time Godara was selected as a community where constraints of the programme. the CDC is established and has a first project in progress. The separation of the men’s 7.3 Threats to further implementation and women’s shura is also a common There are some potential threats to this practice in the Kabul CDC, which the team ANNEX A7: largely effective implementation of the wanted to research, having observed a KABUL PROVINCE programme so far. Despite the team effort mixed CDC in Bamyan. In other respects

233 too the community profile (see below) shura but observed by the general public]. matched the general district profile, so that The criteria were that they should be honest it could be considered broadly representa- and transparent with the people. Most tive. attention was paid to selecting an honest treasurer who would be transparent and 8.1.1 Community profile respected by the people, and accountable. (Information provided by the FP with Several members were successful business- further detail from the CDC and the men until ruined by the war; others are pro- researchers observation.) fessionals (administrator in the Estalef education department, some teachers, a Godara is a community of 400 families living manager in the Ministry of Finance.) in two main areas of settlement. The ethnic mix of the village is predominantly Tajik with A women’s shura was also elected and sits small numbers of Sadaat (Arabs) and Khoja separately from the men. Representatives families. were elected from each of the 5 Mosque communities. The women gathered in Most of the families are living in poverty. private houses where ballot boxes were set Barely 10 per cent could be described as of up. It has had a big social impact in that middle income and possibly 2 or 3 per cent women now know their neighbours and as rich. It was only in the past year, largely as meet regularly to discuss ideas for projects a result of NSP, that most people got work. and community projects. Unlike their male They mainly work as labourers as well as in colleagues, all but two are illiterate and agriculture, which does not provide suffi- none is able to manage accounts or keep cient income. records. Their treasurer therefore receives help from the men’s treasurer. However in the past the village had been prosperous and developed, making a good So far it is the men’s shura that constitutes living from grape cultivation, businesses the effective CDC government in the such as pottery (for which the area is community and in representations to famous) and carpentry as well as a popular outside bodies, but the women’s shura has tourist venue. They have therefore been made some representations to the health impoverished by the war and this is imme- department. diately evident as many houses are still ruined and previous livelihoods are clearly The household survey (see 9) suggests that not yet recovered. the elections were considered well conducted and both shuras have general The village was almost totally destroyed acceptance and are believed to be working (houses and vines and irrigation systems) by in the best interests of the community. the Taliban and abandoned by all the residents for 5 years until the fall of the The surviving previous leaders of the Taliban. All the residents are therefore community, the head of the Mosque in each returnees, many of whom have only community, the Malik and elders have been recently returned. Most were displaced included in the CDC because many are internally to the cities, but between 50 and ACKUthought to be both knowledgeable and 100 families left the country to Iran and experienced. Respondents to the house- Pakistan. There are also 50 widows and hold survey also mentioned the previous about 100 disabled living in the village. influence of warlords, but suggested their Many of these were victims of the violence. influence had been reduced by the creation of the CDC. This evidence supports the Because they are all struggling to recover claims by the DRRD, OC and FP that their livelihoods and support their families, potential conflict between rival community the villagers have little time for voluntary leaders has been successfully avoided in the work, but the paid NSP work has been very Kabul CDC. welcome. There are 4 special committees established 8.1.2 Legitimacy and acceptance of the CDC under the CDC: social affairs; agriculture; The men’s shura is made up of elected rep- health; education. As much as possible, the resentatives from every cluster of 20 house- members have specialist knowledge of the holds in the community of 400 families. sector concerned, because one function is Following this election the Head, Deputy, to represent the village to the government THE PROVINCIAL Treasurer and others were chosen [by the ministries on particular issues. Another FIELD SURVEY REPORTS

234 function is to advise the community. The 8.1.4 Projects traditional leaders, for example, mostly sit Two general projects have been planned: on the social affairs committee. the construction of an access road from the main highway to Kabul to the village, and a 8.1.3 Functioning of the CDC clean drinking water system. in relation to the whole community The development plan was drawn up by the The access road CDC after a consultation process in which The road was prioritized because it would the representatives asked the residents in have an immediate impact on livelihoods, their respective clusters to identify their enabling the farmers to transport produce problems. The CDC then identified the pri- with less damage and lower transport costs orities and reported back to the residents. for sale in Kabul. At present hiring donkeys In other words it was a consultative rather to transfer the goods to the main road is far than participatory process for the general more costly per kilometre than the road population. The size of the population and transport. the fact that they had only recently resettled may have dictated this as the most practical The women supported the project with 10 solution at the time. per cent of their fund because it would enable women in labour to get to the In the CDC, the process of identifying and maternity clinic safely and it would reduce prioritizing problems was fully participatory the cost of goods coming into the village. and helped by the use of the problem tree They also thought it would improve com- method, introduced to them by the FP. munication with the city and encourage the Members felt that without it they would not government to ‘come and observe their have identified the root of their problems problems at close quarters’. and been able to agree as easily as they did to start with the road construction. The Within the village the road is planned to women’s shura also decided to contribute provide access to the hilltop picnic site that 10 per cent of their funds to this general was previously an important source of project as they could see that it is of general income from tourists. At least one house- benefit. holder from another part of the village did not support this route, as it does not benefit The responses in the household survey his area. However, by providing access to suggest that this choice is mostly accept- the village itself the road clearly has a able, but some did not seem to have felt general benefit. very close to the decision-making or that they were fully informed of the details. The construction of the road and associated culverts and water channels was being The CDC does make efforts to report to the undertaken in an organized and efficient residents through announcements in the manner and, as far as the research team was Mosque and by encouraging scrutiny of the able to observe, to a good standard. The accounts. All the CDC activities are scrupu- design and quality standards were set by the lously recorded in 14 separate books. Apart FP engineers, approved by the OC and from thoseACKU required by the NSP Oper- monitored by both FP and OC/DRRD teams. ational Manual, they also keep minutes of The process from first identifying the all meetings with government and outside problem to the start of the implementation bodies and have made a point of recording after receiving the first Block Grant instal- all agreements with landowners who ceded ment took 3 months. Ten per cent of the land for the road project. This represents a cost is to be provided in labour by the high level of accountability and trans- villagers (i.e. voluntary in addition to the parency. However, it does not overcome the paid labour). problem of communication with the uneducated members of the community. The project is also overseen by the CDC’s Control, Evaluation and Supervision The women’s shura, since the members are Committee and managed on a daily basis by mostly illiterate, does not keep records. The a CDC member with business management men record all the expenses for them and experience who does the purchasing and announce it in the Mosque. The FP social supervises and hires the villagers paid to organizers also keep some minutes of work on the project. (There was one ANNEX A7: meetings and activities in a notebook that is complaint from a householder about the KABUL PROVINCE kept in the meeting room. allocation of this work see 9.)

235 The drinking water project between local government and the people. The drinking water project, which has not Relations to the central government have yet started, has general approval from the also been built through NSP, in particular in householders as all will benefit. The women the national CDC conference where were particularly aware of the health delegates freely expressed their views and benefits and for this reason supported it. asked questions of the ministers.

Projects beyond the NSP The old pattern whereby plans were made The men’s CDC is already engaged in inves- in the cities and then imposed on the rural tigating and negotiating further projects communities without proper surveys, has (though it seems the general population are been reversed. Now development is not aware of these moves). One of these is planned to grow from the rural areas to the a micro-hydropower project to be shared cities. with neighbouring communities and funded by a Korean NGO. The CDC had The women also said they readily contacted been engaged in mediating a conflict over (local) government with their needs. For land acquisition for this scheme (see example they had made representations to below). They are also approaching other get an obstetric doctor posted to the clinic. ministries and NGOs for projects. They said the relationship was good and they expected it to get better. With peace Women’s projects and this relationship with government, The women’s shura has spent a lot of time people and government can unite and focus in discussing ideas for projects. The list on solving their problems. includes: animal husbandry, pottery, carpet- weaving, tailoring, a public bath, a beauty 8.1.6 Relationship between parlour and a bakery. They expect to select the CDC and the FP from these a priority for a future project. The members of the men’s shura were very positive about the role played by the FP, However, at the present they say they have which they said had facilitated all the little time free for managing projects. process so far, cooperating with the Instead they are investing in skills training. community and showing them respect. Women with carpet-weaving or tailoring Although they are aware that there is a skills, with a teacher and material and complaints box in the SDF district office, machines provided by SDF, are training they have never had occasion to use it other women. The women are also taking because they have no complaints. literacy classes and learning accounting. They mentioned training in peacebuilding, Thus SDF is in fact supporting an adult community mobilization, human rights education programme (literacy, numeracy from the Islamic perspective, mediation and and livelihood skills) with the women to conflict resolution, finance and administra- equip them to run their own projects in the tion. They had been deeply moved by the future. peacebuilding process and the finance and administration training had ensured they 8.1.5 Relationship between ACKUcould undertake all the daily CDC tasks. the CDC and government The men in the CDC explained that previ- The project had enabled them to acquire ously interaction with government was the skills they need for future endeavours. through influential figures like the Malik and Next time they expect to do most of the job Mullahs and those with education. Now themselves, though they will still need every contact is set up through the CDC. technical assistance for engineering and project design issues. On the government side, the District Governor has been very supportive of the This account and the fact that the CDC is CDC and works through them, enlisting already initiating other projects and using their help in various matters, for example in their mediation skills in community identifying the neediest farmers to benefit relations, suggest that the implementation from seed distribution, or in resolving of the programme by the FP has broadly disputes such as over the land for the achieved its objectives for both governance Korean project. and project management capacity in the case of the men’s shura. THE PROVINCIAL As a result, there is a good partnership FIELD SURVEY REPORTS

236 The women (in the presence of the SDF The creation of the shura has enormously social organizer) also expressed satisfaction increased their social interaction and social with SDF’s role in the community and the awareness and the household survey CDC. They too were aware of procedures responses indicate that this also includes for complaints but did not say they had used communicating with non-shura members. it. However, they are the first to recognize that They were most appreciative of how much they do not have the capacity (or much they had been able to learn from SDF in time) to run projects. Their number one various training courses: NSP awareness, the priority is therefore capacity-building, role of the CDC, health awareness (about starting with literacy. services such as vaccination) as well as the literacy and skills training. It was very clear to the researchers that a very positive capacity-building exercise was 8.1.7 The capacity of the CDC being facilitated by the SDF staff and that this was the priority of the CDC members, The men’s shura given the ground they have to make up Based on the criteria set out in the OM the compared to the men. men’s CDC is classed as: Capable. The Men’s CDC is fully capable of carrying out all the functions envisaged in the 8.2 Established CDC in Shakadara manual, including keeping exemplary District with successfully completed records and financial accounting. It is now projects: Aziz Uddin; Taj Mohammed; expanding into other areas of representa- Salakhail; Ghaza tion and community development. It is fully These short visits were mainly directed at capable of obtaining donor/NGO funding assessing the finished projects while and government services for the benefit of hearing from the CDC members (men only) the community. The one area in which it will how the process had been initiated and continue to require technical assistance is in managed. In the course of the discussions, engineering project design. however, they gave some indications of the functioning of the CDC and their views on The household survey however reveals that its value. though they regularly report in the Mosque on their activities and make their records 8.2.1. General observations available for scrutiny, there is still a commu- Three of these were agricultural communi- nications gap between them and the more ties similar to Godara, producing fruit and disadvantaged villagers. In particular it vegetables for sale in Kabul and for that seems that the prioritizing of the projects reason had chosen similar priority projects. was discussed by the representatives not in One community, where drought prevented the community as a whole, so that an any resumption of agriculture, depended opportunity to engage all the residents was entirely on labouring work in Kabul for its missed. It may well have been impractical livelihoods. given the size of the population but, as in Shah Qadam,ACKU relying on the representatives The communities ranged in size from 158 to to keep the villagers informed does not 370 families. As in Godara there was clear seem to meet this challenge. evidence of a successful process, both in the establishment of governance through the The women’s shura CDC and in the quality of the projects On the basis of the criteria in the OM the completed. Relevance and sustainability women’s CDC is classed as: Not able. were clear in the case of the agricultural That is they would not be able to carry out communities. In the case of Taj Mohammed, all the tasks listed as CDC responsibilities. its dependence on the urban economy, and Having said that, they do have the capacity lack of any real resources, presented a to examine community problems and set challenge that the programme is perhaps priorities. They are able to communicate not equipped to meet. their needs and recognize the roles of government and the FP (NSP awareness is 8.2.2 Legitimacy and acceptance good). They are clearly informed about of the CDC/ elections what the men’s CDC is doing and have The CDC in all four communities are ANNEX A7: support from them. divided into men’s and women’s shura. As KABUL PROVINCE in Godara, the members confirmed that the

237 previous community elders were mostly Taj Mohammed, having no water supply and included in the CDC, or no longer had any relying on urban work, had opted for a role as leaders. They expressed the view lighting scheme supplied by diesel that the most important gains from the NSP generator. Although this too was well were social: greater social unity and cooper- executed and managed, its sustainability is ation. in question as the price of fuel rises and the residents’ incomes remain at the same low The elections to these councils appear to level. have followed the procedures envisaged in the manual. Relationship between the CDC and the FP 8.2.3 Functioning of the CDC/capacity In these visits the researchers were accom- The processes described by these CDC and panied by the SDF staff and did not the well-kept documents and notices they therefore discuss their role with the CDC presented, suggested that they were now members. However, some volunteered capable of undertaking all the necessary favourable comments on, for example, the tasks to comply with the NSP manual. The peacebuilding workshops and mentioned three agricultural communities had also the extra time they often worked. SDF staff, been able to go beyond that: learning how for their part, were relaxed and unassuming to resolve conflicts and negotiate land con- in their relations with the villagers, leaving cessions, to extend their road construction them to conduct the discussions with the to neighbouring communities with funding researchers. The impression was of a from new donors, and to negotiate the sale mutually considerate working relationship. of electricity and other services to neighbours. In these cases as well as the collective capacity, there was clear evidence of mar- ketable skills being acquired by individual 9. Household Survey: Godara community members in addition to the benefit of the paid work for the project. The Summary of results: fourth community, Taj Mohammed, with its urban economy, seemed less focussed 9.1 The Sample though its functioning complied with all the Representatives of 10 households (5 women guidelines, and were unsure of their future and 5 men) in the two main areas of the plans. village were interviewed. Their ages ranged from 24 to 60 Projects (average 40) While the infrastructure projects are run by 9 were ethnic Tajiks (the majority group the men on behalf of the whole community in the village) and one Saadet (Arab). the women, as in Godara, had so far con- In relation to the village as a whole they centrated on small productive projects. rated themselves as poor (3); average (6); rich (1). Two of the agricultural communities, Aziz Two were widows and one the son Uddin and Ghaza, had chosen road building of a widow. Three were disabled projects, for the same combination of ACKU(war injuries) and one had a disabled economic and social reasons as Godara. In husband (though two of these were Aziz Uddin, for example, they deferred the able to work). construction of a school, realizing that by Average family size was 9 (with one building the access road they would facili- widow living alone) but few households tate the construction of the school and at had more than one or two working the same time increase income towards adults. paying for it. The projects had been imple- Two were farmers, 4 families depended mented to a good standard under effective on unskilled labouring (including on community management. the NSP project) and 3 had skilled workers (also involved on the project). Salakhail had completed a well designed The widow living alone depended on micro hydropower scheme to supply all the support from neighbours and visiting households and had established a relatives. community payments scheme to pay for a skilled operator to run and maintain the equipment. They also plan to sell power to 9.2 War experience/post-war THE PROVINCIAL a neighbouring community. The village was abandoned after it was FIELD SURVEY REPORTS

238 sacked and burnt by the Taliban. The give an account of them and judged them to householders interviewed had all had their have been well run. homes destroyed and lost their possessions. 5 had fled to Kabul and one to Mazar. The Respondents either said that no means of others had been refugees in Pakistan and taking decisions existed before in the Iran. Two men and the husband of one of community or that warlords and corrupt the women had been disabled in the individuals had taken over incoming aid for violence and one woman’s husband was their own gain. The CDC had greatly killed. reduced their influence.

The end of the war enabled them to return At least one returned refugee (but no IDP) to their homes and rebuild what they could. had received building materials from Greater security and calm enabled them to UNHCR before the CDC – but still only had start work but their livelihoods were still one habitable room. precarious. Two families had only returned after the setting up of the CDC. One mentioned the high rents in Kabul as one 9.5 The CDC today reason. 9.5.1 Projects/priorities/functioning of the shura 9.3 General understanding Apart from the two marginalized young and awareness men, everyone was aware of the regular All the women, but only 3 of the men, had a meetings of the CDC but there was less good general understanding of the purpose clarity about its decision-making. Two and activities of the CDC and its relationship women (one the head of the women’s to government and international aid. They shura) described the activities of the did not understand the way it functions, women’s shura: ‘awareness-raising about especially the finances in detail, but were government and discussing women’s satisfied with the regular briefings from the projects’. Two other women described the treasurer. The two young men who had very general projects and one said ‘we don’t little involvement were both disabled: one, know [how it works]’. The 4 men who a grape farmer, struggling to support a described the CDC suggested that the rep- widowed mother and younger brother, was resentatives debated the priorities and “too busy to know”; the other was confined made decisions but did not keep the at home in a wheel chair. residents fully informed, although they thought they were mostly doing a good job. The accounts of the householders suggest One man criticized the foreman of the road that the CDC is very active on their behalf, project of favouritism in deciding who could makes efforts to be accountable, and has be kept on when the labour force was the trust of the majority. However, the reduced. The disabled young man in a responses reveal some communication wheel chair said he could not follow what gaps, especially to the more disadvantaged. went on but believed the CDC members On the other hand the level of general were ‘good people and wholeheartedly awarenessACKU of the women reflects some work for the benefit of the community’. effective capacity-building work by the FP staff. The majority thought the two projects (road and clean drinking water) were going to be generally beneficial. 9.4 The history of the CDC Two women described the CDC as solidarity. All either said the whole CDC membership Two women and two men described it as a or the heads of the CDC were the leaders means for consultation to solve problems and only representatives of the community. and work for the community. One man described it as representation to govern- All agreed that the CDC had very good ment of the community’s needs. To one relations with government, especially the woman it meant work. Two men gave no [District] Governor, who took a keen answer. interest in the CDCs. Two men noted that the police were now active in crime preven- However, all but one severely disabled man tion in the village and attributed it to the ANNEX A7: who returned after the elections had either CDC. KABUL PROVINCE taken part in the elections and /or could

239 As regards participation in the project: Unity was the most commonly used women did not see any role for themselves description (4 women, 4 men). [All later but mentioned male relatives who took agreed that the village was more united part. One said she expected to take part in as a result of the CDC, and one woman the women’s projects. Disabled and elderly described how before they didn’t even men also mentioned sons and brothers who know their neighbours.] took part. Two women and one man spoke of solidarity and another man of Two reasons for not participating or finding cooperation. participation difficult were mentioned: One woman spoke of peace and two the road project would not directly benefit men described it as ‘calm’ and an end one area of the village; villagers have to give to warlordism. One woman said it meant priority to earning a living to support their equity. families so the amount of voluntary work One man described it as a bridge they can do is limited. between the community and government to make their needs 9.5.2 Financial management known. One man was able to describe how the CDC Two women also referred to its material managed the finances and had been shown benefit and as a means of ‘survival’. the documentation. Two said it was done in the CDC but the treasurer reported However when they described how it had monthly in the mosque. The women either improved their own lives they described said it was managed in the CDC or that the material benefits as well as again mention- men/men’s treasurer manage it. The ing improved governance. One woman saw majority implied or expressed trust in those the main gains as ‘rehabilitation and work’. responsible but also implied they were not able to follow it closely. However, the young Their understanding of the government’s man who admitted he knew nothing about intentions were clearly influenced by their how the CDC works said: ‘I know that the experience of NSP. They thought the gov- money is given to those who do some job ernment was engaged in: rehabilitation/ but only Allah knows of what happens rebuilding (4 women); promoting unity and behind the curtain’. security (two women, one man); poverty reduction/developing projects to benefit Three women said the programme was a the people (one man, one woman) and government initiative funded by the World encouraging international assistance (one Bank. One of these (the women’s CDC man). All the women and two men thought head) also explained how it was facilitated the government had demonstrated its by NGOs. One woman and two men said it interest in their community through its was a government programme funded by assistance, while other men (thinking back international aid. Another woman and a to former times) thought the government man were aware that it was a government had a special interest in Estalef, because programme. they would want to see it restored as a tourist venue which they might visit as The women all said the CDC had not ACKUbefore. approached any other funding agency (3 said ‘not yet’, as if they expected it). One These perceptions suggest a significant man gave the same answer and the other impact in terms of community and national said he didn’t know. One man thought that solidarity within months of the start of the the drinking water project involved another programme in the village (compare with the agency. [i.e. The householders, including matched community in Kalakan). the women’s shura head, did not know that the CDC (see C14) was in close discussions with a Korean NGO about a micro-hydro 9.7 Confidence in the future project and in contact with other min- Expectations of material benefit are also istries.] high. Respondents had a wish list of further inputs to improving their lives: schools, clinic, bakery, literacy, livestock farming, 9.6 Impact (after 9 months) electricity and work for men and women. Men and women shared an understanding of the CDC/NSP as primarily a All the respondents, including the most THE PROVINCIAL community-building exercise. marginalized, expressed confidence in the FIELD SURVEY REPORTS

240 future. Two women and two men (one many residents still cannot return from the severely disabled) said they were very opti- city because they have no house and no mistic about the future of the community livelihood. He therefore thought the main and the country. Others (one woman and priorities for NSP projects were likely to be two men) were hopeful if the current unity shelter, irrigation systems and drinking and peace prevails. water. (The team certainly observed many buildings in ruins or semi-derelict, including ‘I am very optimistic about the future the government offices where the inter- because what I have today is beyond my views took place.) wildest dreams. I even did not imagine I would be back in my own birthplace Population one day. I have heard with my own There are currently 56,608 inhabitants. ears from Taliban that we should go There are two ethnicities: Tajik (90 per to Tajikistan. I pray Allah almighty for cent) and Pashton (10 per cent). listening to our prayers. I always tell Most are poor, at the lowest economic my sons and grandsons to work level. for our country and not let it 5 per cent are well educated, 15 per be destroyed again.’ cent can read and write. (Unemployed former foreman in a construction company) Livelihoods In general, they have not been able to ‘I think the future of my country is restore their grape farms, which were very bright. The war has ended and the main source of livelihood. the people are living peacefully. Less than 2 or 3 per cent are drivers – When the peace is there, there are only 10 car owners. everything moves forward.’ A small number are carpet weavers but (Disabled grape-farmer) working for others.

10.1.1 The village of Kalakan Centre ‘The future is in our hands now; Kalakan Centre in Kalakan district was we can both rebuild our country selected as a match for the Godara and redestroy it. It depends on us. community on the following grounds: But I think people are tired of war and want to live in peace Geographical proximity: a farming comm- and construct their country.’ unity with links to the urban economy to (Farmer) the north of Kabul City. A 90 per cent Tajik community with a small minority ethnic group.

10. Matched community It had a similar history to Godara: destruc- without a CDC: tion of homes, grape-farming, trading and Kalakan Centre, Kalakan District craft industry by the Taliban, which displaced the population internally and to Since allACKU the villages in Estalef were already neighbouring countries. Return of IDPs and participating in the NSP it was necessary to refugees has been slow as in Godara due to identify a matched community to Godara in the destruction. People in the district were a similar neighbouring district. aware of NSP (through local contacts and because the Governor was seeking to get NSP introduced to the district) but not yet 10.1 Profile of the district of Kalakan informed about it. This district, like Estalef, was extensively burned by the Taliban during the war and The view of the Governor was that condi- most of the people abandoned the settle- tions were similar in all the villages in the ments, mostly taking refuge in Kabul. A few district, so it was decided to carry out the stayed and 60 were killed. As elsewhere, the survey in Kalkan Centre. irrigation channels for agriculture and the grape vines were destroyed, as well as infrastructure such as bridges. 10.2 Existing governance The District Governor was interviewed in ANNEX A7: According to the Governor, only about a his office and was later joined by the council KABUL PROVINCE third of the houses have been rebuilt and of elders. The SDF NSP manager facilitated

241 the meeting and was present. relying on the clearly unrepresentative council. As a consequence the male sample The District Governor seems skewed to the more influential and The Governor explained he was recently educated members of the community with transferred from Estalef where he had close association with the council, and all worked with NSP. He is anxious to introduce but one described themselves as ‘average’ it in Kalakan, comparing it favourably with in terms of income. Nevertheless both uncoordinated NGO relief projects: majority Tajik and minority Pashtun were included, and one war disabled ex- “...it is an organized programme combatant. The women’s sample seems implemented according to a more representative and gives a perspective government plan... assistance is bottom on the disadvantaged (by gender, illiteracy up, which is a positive aspect compared and poverty etc) as well as the better off. to NGOs who are not consistent and not transparent and frustrate a lot of Average family size: 7. Average number people... The important point about of children below working age: 4 (some NSP is transparency and accountability families all adults). The majority were and a good system of reporting – all the husband and wife with children. Two community is clear about it. It builds families had 3 generations (widow, and a good relationship between the two generations). government and the community. Four ‘poor’ families; 5 ‘average’; 1 ‘rich.’ Besides that the villagers find work Three families had sick adults to and can choose their own projects support and one householder, a former and work on them.” combatant, said he had mental illness as a consequence of war injury and The Council of Elders therefore did not work. The Governor has convened a council of Eight Tajik and 2 Pashtun families. elders to work with him, drawn from the following existing councils: Livelihoods included: carpet-weaving (two Local village committees women and one man) [as contract workers, The Scholars Council not small proprietors, see profile above]; The Health Council drivers (two husbands); labourers (two sons The Education Council. of women householders); two teachers; two government employees; one street trader In the meeting their main spokesmen were (son); two shopkeepers (sons). Two hus- a Mullah and a teacher. They also included bands and one male head of household former commanders. were unemployed. However, the majority had been grape farmers as their main After giving a similar account of conditions source of livelihood (see below, unanimity in the district to that given by the Governor in citing water for irrigation as the main and later by the householders, they said priority). they were interested in introducing the NSP programme in the district and would be 10.3.2 War experience/post-war prepared to cooperate with the CDC. One ACKUAll the families experienced the same interviewed in the household survey said he destruction of their homes and property, as was happy to stand down if a CDC was well as the grape vines and the irrigation elected. They were keen to see NSP in the systems from which they made a living. Four district and said all the right things about were displaced internally. One of these solidarity, unity etc. However, the became a fighter and took his family every- household survey revealed divergent views where with him. Six were refugees in about their motivation (see below). Pakistan and/or Iran. One of these left before the Taliban took power, but as a result of the fall of the Communists. 10.3 The household survey They returned at different times after the 10.3.1 The sample fall of the Taliban. Those who returned as As in the other communities, representa- recognized refugees had received some tives of 10 households (5 men and 5 (often minimal) relief aid/assistance for women) living in two different areas of the rebuilding from CARE, ACTED and UNHCR. village were interviewed. It was rather more The former combatant (member of the THE PROVINCIAL difficult to achieve a representative sample, council) had been through the DDR FIELD SURVEY REPORTS

242 process, received assistance from CARE to There was a similar divergence on the issue rebuild his house, and his sons had had of village unity. skills training. Another IDP member of the Five men thought the village was united: council had also been assisted to rebuild his “By the grace of God, Kalakan is very house. One teacher said that these agencies united”. had built 4 schools and two clinics in the Two women were just as adamant in district (but not in this village). However, denying any unity: “No there is no unity. two women IDPs and one returned male If they receive anything they keep it for refugee said there had been no assistance. themselves, not for a poor family to address their problems.” The main improvement in their lives was Three women saw some social solidarity security/peace (7). Four women said other in participating in ceremonies and than that nothing had changed; they were parties and that “People are feeling worse off than before the Taliban. Four men comfortable and are united whenever said being able to return with some there is an issue”, and “in sitting prospect of work was an improvement. The together and feeling security”. two teachers cited the opening of schools and one man the new government. Opinions on community decision-making also diverged. 10.3.3 General understanding The 5 men all said the decisions were and awareness made by the District Governor with the The difference from the CDC community council of representatives. was the clear lack of consensus on the issue The woman who described herself as of governance and the greater marginaliza- ‘rich’ said: “Our elders take decisions tion of women and the poor. The lack of and all the people sit together in the transparency/communication led to distrust mosque and focus on the problems of and accusations of corruption (whether the people to find the main problem.” justified or not). Respondents often seemed Two women said there was no to be selective in what they admitted to representative means of making knowing. ‘Don’t know’, in some cases community decisions and two said seemed to be a cover for ‘don’t want to they did not know anything about it. know’, or ‘not my business to know.’ The same divide was evident on the subject In other words there was a lack of trust and of community participation. solidarity in the community, although there The 5 men all reckoned they were some potential areas of unity such as participated in work for the community, the general consensus that water for irriga- both practical (canal cleaning, mosque tion was their top priority. building), financial (graveyard fund), and three served on the council (social There was also little belief in government organizing and conflict resolution). although many saw some hope in the Three women said there was no current political situation. It was clear that if community work. One said she was too government delivered some benefit they old. The ‘rich’ woman said she would be were preparedACKU to change their opinion. prepared to participate but so far there had been no project. 10.3.4 The community today There were different accounts of the When asked if the leaders were working current leadership of the community. The 5 with the government, the 5 men said yes; men said it was now led by the District two said they worked closely and one said Governor and the Council (made up of rep- the Governor is a good man. resentatives from the different villages and The ‘rich’ woman said they did ‘if there other committees, see interview above). is some problem’. One also mentioned the Police Chief. Two women said they did but for their own benefit. The 5 women clearly saw that the power One said they did but ‘we know nothing was exercised by some key individuals, of it’. described as: ‘Malik’, ‘Mullah’, ‘Mosque An elderly widow said ‘How should I leaders’, ‘elders’ and ‘commanders’. As an know?’ elderly widow put it: “Mosque leaders, com- ANNEX A7: manders, and now they call themselves rep- Five women and 4 men thought no KABUL PROVINCE resentatives”. approaches had been made for funding other than NSP. One council member said

243 they had petitioned the President without another said he elected them but did result. not know their plans. The men appeared to be less well informed There was little confidence in the govern- about NSP than the women. Three knew of ment’s interest in the community: the name (two from the radio) but claimed Three women and two men thought they had no idea what it did. One who that the government was not interested listened to the radio knew about it but in the community because it had done concluded that the Minister was giving all nothing so far. One man thought that it the projects to his home area. One other was interested but did nothing. One thought it was for funding infrastructure thought it had to be interested because projects. it was elected. One woman thought the government Tw o women also said they knew nothing was interested, but the elders wanted to about it. take all the benefit. Another said However 3 had heard of it and perhaps the Governor might know. understood its basic principles: Only one man said the government “Yes, we heard that all should be was clearly interested because it was together in unity and recognize the encouraging international assistance. poor.” “Yes, from the radio – it means unity.” 10.3.6 Confidence in the future “Yes, that we will all select our The respondents were unanimous on what representative and find work and would most improve their lives: feel secure.” Water for agriculture/ drinking water The 5 women thought a CDC would (5 women, 5 men) be welcome in the community. One Other needs were: specifically said the leaders would Work for men and women (3 women) welcome it. School, clinic, roads and electricity Their opinion was also based (each mentioned by one woman) on knowledge of the impact in neighbouring areas: The women saw some reasons to be “Yes we would be happy to have hopeful (such as the prospect of NSP) but CDC/NSP in our community to were cautious in their aspirations: improve like Shakardara, Estalef “If the government focusses on our and others.” community we will be optimistic, Three men on the other hand said otherwise no.” (3 women expressed they did not know. One said any good this view) government programme would be “Yes we are optimistic to have a school welcome. Only the former commander and for our children to become literate.” and council member gave clear support: (woman) “I know that in the CDC all the new “Yes we are waiting to have a council members should be elected. representative and to work for the The people and I am ready to community and improve our lives.” dissolve the current council if CDC (woman) is established.” ACKU The men based their cautious optimism on 10.3.5 Perception of national solidarity the improved political situation: No one felt informed about government “I think a bright future awaits us. Our plans. people are tired of the war, but God Four women (although two were knows better what will be the future.” apparently informed about NSP) “If God is willing, everything will get claimed that they could not know better, but the government should anything about government plans, invest in youth. How long should we either because they had no radio ask the world community to help us?” or TV or were illiterate. “I think we will have a bright future One woman, who did have a radio said: because we have a powerful state now. “Maybe they are trying to have electricity The NGOs help us and so does and bring it from Russia and seek the international community. support from other countries.” The parliament is being established. Three men also simply said they did not We will certainly live a better life after know about government plans. One said this.” THE PROVINCIAL the government didn’t inform people, FIELD SURVEY REPORTS

244 A8 Kundoz Province Provincial Field Research Findings

1. Timing and scope of research 2. MRRD provincial and district programme management The research team worked in Kundoz from 23 October–8 November with the NSP man- The Deputy Director of DRRD in Kundoz agement teams (DRRD, OC and FP) and in province was interviewed, followed by a the rural districts of Chadara and Khan separate interview with operational staff. Abad.

Persons interviewed 2.1 Kundoz DRRD The Deputy Provincial Director of DRRD The Department has 41 members of staff in Provincial and District DRRD staff: Kunduz (28 permanent and 13 support Social Protection Officer staff). Like other provincial departments its Finance and Admin Officer main operational problems are lack of Irrigation and Sanitation Officer transport, limited resources and low staff Contracts Officer salaries. The NSP Provincial OC The Provincial Manager of GRSP The Community-led Development Depart- GRSP provincial staff: ment was created when the MRRD was Social Organizer created, by expanding the pre-existing Local Site Engineer Development Department, which had only Facilitator limited capacity. The GRSP Chardara District Manager GRSP district staff: In addition to the NSP the Department is Social Organizer responsible for other MRRD projects – FacilitatorACKU water sanitation, NEPRA, micro-credit and The CDC in Chogha-e-Sofla Village, emergency response. Most of these projects Khan Abad District are not directly implemented by the MRRD Representatives of 7 households in department, whose role seems to be minor Chogha-e-Sofla and mostly superficial in support of imple- The CDC in Dour Robat Village menting NGOs. It is only through the Chardara District emergency programme that the MRRD have Representatives of 11 household in managed to find access to some resources Dour Robat with which to help affected areas. However, Chahar Dara Youth Committee in Dour it is limited to distribution of material rather Robat village, Chardara District than any intervention to initiate develop- 1 Margaret Chard (Team Leader) Elders of Mangal Abad village, Chardara ment projects. with Marina Nawabi and District (no CDC) Jawed Nader. Representatives of 8 households in Mangal Abad 2.2 Experience of community Representatives of ACTED in Kundoz development with the NSP Both the Deputy Director and the staff members interviewed broadly concurred

245 that the NSP was a good programme and all interviewed said they lacked the means to understood its basic rationale, which is do it and in any case never have anything to different from the other programmes in that do with NSP and do not consider it part of it is supposed to be planned, implemented their workload. and controlled by the communities themselves. The only training the DRRD have received from the NSP was for three employees who However, they were clearly not happy with have been sent to work with the FP to get their level of involvement in it and thought on-the-job training. They are supposed to it would have been better if it had been get on-the-job training from the FP for a implemented directly by MRRD. In the period of one year and they have already meantime with the resources they have, the spent more than seven months. The Deputy Director saw the DRRD’s role as respondent did not think that there had monitoring and overall observation of the been any corresponding increase in the projects and coordination with other min- capacity of the individuals involved. istries at the provincial level. The other staff said they had received no It was felt that they could not carry out training or advice from NSP. effective monitoring because the OC and team works directly with the FP, and the rest of the DRRD department do not know what 2.4 Constraints due to is going on, and thus feel isolated from the issues in NSP management NSP. As one respondent stated, ‘The OC is All agreed that ‘there are complaints coming responsible to report directly to Kabul and from the communities and we have shared is not very keen to share NSP developments them with the FP but they have failed to with the rest of the department. Though we follow it up in some places. The FPs are had asked for a joint commission to monitor carrying out the project without informing and observe the NSP programme they the communities of the role of the govern- overruled.’ The staff described how they are ment.’ further constrained by lack of transport and other resources to visit the projects. They all The Deputy Director thought that more said they had no direct contact with the coordination with the DRRD, similar to that CDC. which they have with the OC, would be one indicator of good performance by the FP. The Deputy Director, who also felt sidelined, said the facilitating partners are His staff however said that the DRRD have not working with full commitment and not developed any such indicators and in honesty. In addition the district administra- any case, they had ‘little interaction with FPs tors regularly interrupt the programme and as the FPs are contracted by the ministry in cause delays in the projects. Kabul and feel no responsibility to report and share the programme with the MRRD at On the other hand, coordination with other the provincial level. They are doing their ministries has not presented any problems own publicity and sometimes ignore the because the projects are comparatively ACKUrole of the government itself.’ small, so coordination is relatively straightforward and coordination mechanisms already existed. (A joint commission of the 2.5 The role and impact of NSP MRRD, Agriculture ministry and Irrigation The Deputy Director thought the NSP has ministry has been established and deals ‘to some extent raised the awareness of the with emergency response to natural people and they have realized the role of disasters. The head of the commission is the the government in the development of their provincial governor of Kundoz. This joint communities.’ mission also impacts positively on the NSP.) In addition he thought the contact between government and communities is inevitably 2.3 Training and capacity of the DRRD improved when there is more interaction The Deputy Director thought that the between the different levels of government DRRD had the capacity and resources to and the community through the NSP pro- carry out its monitoring and coordination gresses. For example, the issues and role, but direct implementation would problems raised during the implementation THE PROVINCIAL require more staff and resources. His staff of the projects are always referred to the FIELD SURVEY REPORTS

246 district government and, if not solved, to project’. They also raise awareness of the the provincial and central government. This different roles of government and the FP. process itself leads to more interaction and They then have a support role ensuring that better understanding and working relations the project is on the right lines ‘with the between communities and the different standards and criteria developed for NSP’. layers of the government. The DRRD staff They have also gradually built the capacity also thought the contact between govern- of the communities and they are confident ment and communities through the CDC is they now have the skills for project imple- going well, to the extent that they are rec- mentation. ognized as legal entities and other ministries are starting to channel programmes It is notable that at no point did any of the through them. staff refer to the setting up of the CDC, the election process or any continuing issues of The Deputy Director had noted an increase governance. in refugee repatriation and thought one of the main factors in this could be the The communities were initially sceptical existence of NSP projects in their communi- about their intentions as they had had ties. previous experiences of NGO surveys that were never followed up by any action. They The NSP was also seen by both Deputy had a number of meetings to discuss this Director and staff to be contributing to with the communities, and also made it national solidarity by bringing different clear that GRSP would not remain after a groups together in the communities or couple of years and the CDCs therefore simply by creating jobs in the communities. have to be prepared to take on the responsibilities in the absence of the FP.

2.6 Future of NSP They also thought that as a result of their Despite the problems the Deputy Director mobilization work the communities now hoped that the CDCs would remain as a know the different roles of the FP, the OC permanent institution. He noted that and the government in the programme. ‘Looking to the short history of the project there are visible improvements in the CDCs and we expect more improvements in the 3.2 Working relations future.’ He also hoped that it would further with the DRRD and OC bring different groups closer to each other They thought they had good (but obviously and improve national solidarity. The staff limited) relations with the DRRD which, for thought it is difficult to assess the future of example, always helps in registering the the CDC. Some people are doubtful that CDCs with the local authorities and takes they will continue with the same enthusi- part in opening ceremonies. However, there asm and strength once the NSP project were also misunderstandings. One manager ends. complained that on occasions ‘we have problems with the DRRD and that is because whenever there is any problem ACKUwith the CDCs the DRRD is blaming the FPs 3. The Facilitating Partner: GRSP without having full information from the (Ghazni Rural Support Programme) village and the CDCs.’ Other staff thought that the DRRD, because of its lack of GRSP is an Afghan NGO that undertakes working capacity and functional limitations, projects in agriculture/animal husbandry, is not really part of the process and feels irrigation engineering, veterinary services, ignored. women in development, primary health care and sanitation, and technical training In contrast they stressed that the relations programme education. It has been involved with the OC are very good and cooperative. with NSP from the beginning. Nevertheless they recognized that DRRD, OC and FP should really work as a team and this is not happening. 3.1 The role of the FP GRSP management and district staff described their role as ‘facilitating the 3.3 Capacity of the DRRD ANNEX A8: process’ while the community has ‘the main The Project Manager commented that KUNDOZ PROVINCE role of planning and implementation of the DRRD have their own financial problems

247 that in turn affect their staff capacity. For [Both CDC members and householders in example, there is no staff capacity-building CDC and non-CDC communities were more and financial constraints mean that they explicit in their criticism, describing the cannot employ professional staff. The DRRD district administration and some traditional has just one car and that is with the director. leaders as corrupt.] The rest of the staff are not allowed to use it to travel to the project areas. 3.5 Training and capacity-building One FP project coordinator summed up in the communities that, ‘If we talk about OC as part of the A number of training workshops have been DRRD in Kudoz then one can say that their conducted. CDCs have received training capacity is good, but without OC the DRRD about the NSP, peacebuilding, procurement has similar problems to other government and book-keeping. In addition there have departments.’ been workshops, focussing on issues of public health and education (respondents The field staff thought DRRD did not have did not elaborate on how this was done or enough information about the NSP or the how successful it was). approach adopted by the FP in the communities, and the DRRD staff complain that the OC and FP do not share information with 3.6 Participation them and they feel they are not ‘part of the GRSP maintain that they have achieved par- game’. ticipation of all groups including women. Citing examples from one village they said that because they had four projects ‘almost 3.4 Relations between all the community members had benefited communities and government in one or another way’. They also saw the The FP, at the start of every project, allocates level of community contributions as about a month to community mobilization evidence of high participation. to explain the roles of government, FP and OC in the NSP. The MRRD are also invited to However, as discussed above, some ceremonies at the start and finish of the community leaders who did not see the NSP projects. programme as very important were aggrieved when they were not democrati- They all agreed that contact between the cally elected by their community, and com- local government and the communities has plained to the government. increased for a number of reasons, and NSP has been the main contributor (80 per cent of the increase due to NSP). Contact with 3.7 The FP’s capability in relation local administration is also made in cases to the programme demands where the community faces any problem. GRSP was not working in Kundoz before The district administration has also started and had to establish its office and employ to contact CDCs for different purposes. staff for the NSP project; all this took time to They get a variety of information from the establish. Forty-five new staff participated in CDCs and had a valuable contribution in the ACKUa number of training workshops in Kabul in parliamentary elections. There are also order to start the programme, and then had cases where the CDCs are contacted to help to train others in Kundoz. the government for purposes of district security. GRSP management feel that they have the capacity to meet current programme However, the communities are still reluctant demands. Even though there are a high to contact the local administration and vice number of projects to process, the FP versa. One respondent attributed this to the Director stated that ‘we increase our staff, ‘autocratic’ nature of the authorities. The and our strategy is that the experienced field staff described how disaffected tradi- people who had worked in the NSP tional leaders, not in the CDC, were contin- programme for the last two years work in uing to contact the local administrators as mixed teams with the newly employed community representatives, and on their personnel’. part ‘the district administration still do not recognize the CDCs and have more contact 3.7.1 Staff capacity and training with other community leaders’. GRSP have one engineer, a social organizer THE PROVINCIAL and a community facilitator who together FIELD SURVEY REPORTS

248 work on a cluster of 8 communities (a low case everyone benefited from at least one of staffing level compared to some other the projects, and according to one FP FPs).The manager stated that ‘Capacity- manager more than 80 per cent of the building is a continuous process and that villagers will gain improvement in their needs to go on with the project’. GRSP have livelihood. In the second community benefited from a number of workshops everyone in the village will have access to such as community mobilization, peace- clean drinking water. This will lead to building, procurement and book-keeping, improved health that may also have an all of which have been useful. impact on livelihoods. He felt that staff are working reasonably efficiently and there are no immediate skills The engineering staff also claimed that their gaps. infrastructure designs were relevant because they adapted plans from the engi- 3.7.2 Future prospects for NSP trained staff neering department of MRRD to suit When the NSP programme ends GRSP may specific needs of the community and look for other projects, but if the govern- available resources, resubmitting the altered ment decides to expand the DRRD structure plans for approval through the OC. then their personnel, having worked in the NSP, would be a good (human) resource 3.8.2 Sustainability pool. GRSP aim to ensure sustainability in a number of ways: from the beginning the [See SDF Kabul (another Afghan NGO) view community is made aware that they will be that NSP experience will have equipped responsible for the project; the communi- their staff for other jobs in national develop- ties in turn promise that they will try to ment, i.e NSP is contributing to the wider make some savings for the maintenance of national HR development.] the project, though some of these promises are slightly optimistic.

3.8 GRSP district and Many of the projects are fairly simple from a project management technical viewpoint, and little consideration The district staff confirmed that they did not is given to safety considerations. However, see any immediate need for further training, they do take account of any necessary miti- but were ready to participate in any new gating measures when this is necessary. For training plan to enhance the NSP. They said example, in the case of the flood protection they had been trained in PRA as well as men- walls they had tried to make it strong tioning the workshops mentioned by the enough to avoid any risk of collapsing. general manger. They thought the financial training was the most important because The Site Engineer and Technical Supervisor the CDC did not know how to keep then frequently monitor the projects to accounts, but that all the training was ensure that the quality is controlled. The necessary to be able to implement the quality and the type of the material is programme. specified by the technical staff of the FP and written in the proposal. A procurement 3.8.1 ProjectACKU relevance committee of three members of the CDC While the general manager discussed the makes the purchases. projects in the first CDC visited, the district staff spoke of the second CDC community. However, the Engineer warned that the NSP were ‘using the technical standard that They both described the decision-making existed before in other ministries, and our process in the communities in the same technical staff are not very sure about terms: that there were some acute needs technical standards and do not have any that were quickly agreed on (flood protec- idea about NSP technical standards other tion walls, clean water etc.) and then other than their origin in the ministry’. needs in the development plan were Nevertheless all FP staff felt that in accor- discussed if money remained (for example a dance with the engineering plan the facili- tailoring course for women). In one case a ties should still be functioning in 10 years’ significant minority wanted an electricity time. project that did not meet the eligibility criteria. 3.8.3 Efficiency ANNEX A8: The efficiency of the NSP is maintained KUNDOZ PROVINCE On the issue of inclusiveness, in the first because the communities themselves chose

249 the project and so have a vested interest in Similarly, working relations with the OC ensuring its smooth completion and were described as ‘very good’. operation. Thus the project, as well as being monitored by the OC and FP, is monitored by the CDC monitoring committee that 4.3 Capacity of the DRRD looks after the implementation of the However, they thought the capacity of the project. DRRD was ‘not very satisfactory’. In terms of being able to run the NSP they still have a In the case of Chogha-e-Sofla, it took two long way to go. They thought that a lot months from the identification to the start more effort and resources should be of the project, and about 7 months from the directed at building DRRD capacity. start to the completion of the project. The remaining Block Grant will be spent on a course to train women in sewing, and a 4.4 Relations between water intake. Although in this instance the communities and government delay between proposal submission and the Contact between the communities and the receipt of the money was relatively small, government had increased significantly and GRSP maintains that delays affect their most of the contact was thought to be due ability to implement the NSP and often to the NSP, which raises issues that the local entail GRSP being blamed for NSP administration has to get involved in. The problems. They also stated that the delays local administration is also asked to partici- have increased in number and severity. pate in opening and closing ceremonies.

4.5 Training and capacity-building 4. Facilitating Partner ACTED in the communities Their training in the communities covered: The research team held a brief meeting with general information about NSP, procure- representatives of ACTED, which is also an ment, book-keeping, prioritizing needs. FP in Kundoz for the NSP. The discussion They were all necessary for the project was focussed on general issues as there was implementation and they felt successful, no opportunity to visit any communities particularly the procurement and book- facilitated by this FP. keeping.

They had not had any particular difficulty in 4.1 The role of the FP ensuring the participation of vulnerable The representatives thought that their role groups in the activities. is to cooperate with the CDC in prioritizing their needs and implementing the project; that is, their role is to facilitate the process. 4.6 The FP’s capability in relation to the programme demands They found that the CDC, as they gained the They had had to increase both the numbers capacity to act independently, were likely to of staff and their professional capacity to perceive the FP as a facilitator. The weaker ACKUtake on the NSP. In fact capacity-building has CDC think that the FP should stay on in to be a continuous process to update staff some managerial role in the projects. on changes in the programme.

They had made an effort from the beginning to explain the different roles of government 4.7 Staff capacity and training and FP and reiterate it in monthly discus- They did not however think they had any sions, but say they can still find people who skills shortfalls that could affect the effec- cannot grasp it. They blamed the people’s tiveness of their work. The staff had been illiteracy for this. trained in community mobilization, procurement, book-keeping and general information about the NSP as well as PRA. They 4.2 Working relations considered all of these useful and necessary with the DRRD and OC for the implementation of the programme. They said they had very good relations with the DRRD and have weekly meetings with them to discuss ‘all the issues and problems THE PROVINCIAL to be tackled’. FIELD SURVEY REPORTS

250 5. The Oversight Consultant [Note: he clearly had no real understanding of capacity-building and did not see it as part of his role. Interviews by other 5.1 General comments on the researchers with the central HR department strengths and weaknesses of the NSP indicate that this is consistent with top OC The OC was very positive in his assessment management policy. They define DRRD of the relevance and general impact of the capacity-building in terms of formal training NSP: ‘After a long war in the country, sessions and regard capacity-building of the Afghanistan needed to have such a CDC as the main priority.] programme as NSP. Without such a programme it would have been difficult to Not surprisingly he said categorically that reach the remote areas of the country. NSP handing over the programme to the DRRD has managed to raise the awareness of the to be run by the two existing NSP staff people and improve their livelihood.’ would not work. It could work if the existing OC management structure was transferred However he did see that there were to the MRRD, but there would still be initial problems with the implementation of the problems unless this included the expatri- projects due to two factors. The communi- ates currently working in NSP. ties have no previous experience of such projects and cannot implement them 5.2.2 Supervision without facilitation. On the other hand the The OC said it is his responsibility to make FP has been overloaded by working in an sure that resources are delivered to the increased number of districts and this has communities. Immediately after the money reduced their capacity to work effectively. is sent to the bank, the OC in Kabul informs [Note the FP said they were able to meet the provincial OC who then informs the FP, current demands.] who in turn informs the CDCs and trains them in withdrawing and spending the The OC did not otherwise see any con- money. The OC himself visits about 10 per straints in the programme itself. Contrary to cent of all the projects to check if the money what is thought (i.e. by the FP), the money is spent before authorizing the next instal- is transferred on time and he was not aware ments. of delays. He claimed that 60 per cent of the projects comply with the eligibility criteria. People 5.2 The role of the OC have been educated about the criteria of the The OC described his role as, ‘managing NSP programme but, as he said, ‘You can and transferring money, checking the always find influential people in the villages proposals’. He also monitors the projects to modify the project according to their and the programme to ensure it complies own interests.’ As a result, despite negotia- with the objective of the NSP, and gives tion, in a very few cases they cannot advice and technical assistance to the FPs. convince the communities and so end up submitting a proposal for a project which [Until prompted by the next question he does not completely fulfil the criteria. did notACKU mention the DRRD] The OC maintains that the time between 5.2.1 Capacity-building proposal submission and Block Grant dis- When asked he described the management bursement is dependent upon on how well capacity of the DRRD as ‘satisfactory’ but the CDC have prepared the proposals and said it still needs the support of expatriates. other documents. ‘It may take about 20 days They might survive without it but would if there is no need to rework the have problems. documents, otherwise it can take a month or a bit more.’ The OC also have a team to When asked what steps had been taken to check the designs in the region and have a use the programme to develop institutional unit in Kabul that checks the designs. and staff capacities he said FPs, DRRD and OC staff had participated in a number of workshops. He agreed that there was a learning process for those involved in the NSP, but specifically for the functioning of ANNEX A8: the programme. KUNDOZ PROVINCE

251 6. The CDC’s The men’s CDC, whose office holders were interviewed, has 10 members. 6.1 Overview of the communities and their CDC They had been recently established and had not yet started on the tube well project they General community profile had agreed on. Chogha-e-Sofla is in Khan Abad District, bordering Takhar province. The CDC leaders explained that it is a mixed 6.2 Legitimacy and community of Pashtoon (70 per cent) Usbek acceptance of the CDC (20 per cent) and Tajik (10 per cent) In Chogha-e-Sofla the CDC leaders (the four families, totalling 362. The community is office holders) said that the CDC is now the composed of 3 villages and the population sole governing body in the community, was given as 2147. They said that there are which deals with all issues relating to the 53 widows and 16 disabled persons in the community. community. Before, village issues were resolved by the They estimated that 80 per cent of the pop- elders of that particular village in an unco- ulation could be classed as ‘poor’, 15 per ordinated way, but now disputes and even cent as ‘middle income’ and 5 per cent as quite small issues are referred to the CDC, ‘rich’. (As elsewhere this is a relative rather and in fact the elders of the three villages than objective assessment.) However, the are now working together in the CDC main sources of livelihood are agriculture, (alongside other elected members). small shops and animal husbandry, typical of a predominantly poor rural community. In Dour Robat the leaders of the CDC described a transitional situation. Until The CDC has 15 elected members, two of recently the community was led by the whom are women. (The researchers inter- Arbabs, but there was no village-level viewed the CDC office holders [all men], council. After the [NSP] conference in not the whole council, and had no contact Kabul, responsibilities were gradually being with the women members.) transferred to the CDC, and the central government had given guidance to the district Apart from the CDC there are two influen- administration to deal with the community tial residents: a commander on the border through the CDC. However, problems with Tajikistan and the chief of the police in persist: ‘Some people try to exert their Khan Abad District. The community was influence but we hope things will change near to completing its first project, a flood gradually.’ protection wall. Apart from the village Arbabs there are Dour Robat is in Chardara district. The CDC district level tribal councils, which have met leaders said it is a mixed community of customarily to resolve conflicts between Pashtoon (70 per cent) and Tajik (30 per tribes, when these arise. Since the setting cent) families, totalling 263. (One house- up of the CDC no such problem has arisen holder interviewed also mentioned Turks, ACKUso they have not met. However, the CDC and several said that the community leaders did not see how the CDC would consisted of 3 villages.) Thirteen families replace them as they have a wider responsi- were said to be displaced, and 6 returned. bility than the village and command much The population figure given was 1628, stronger allegiance than the newly formed including 26 widows and 17 disabled. The CDC. number of children given (111) was clearly not accurate, or misrecorded. They said 60 As regards the governance in the village, the per cent of the villagers earned a livelihood respondents said that there is a lot of from agriculture, 20 per cent had fixed optimism that the CDC will change the employment and 10 per cent depended on situation but they had not yet done day wages. As this livelihood pattern anything (tangible). They were eager to get indicates, this is a rural community on the started on the practical work to improve periphery of the urban area. conditions in the community before considering the social aspects of the CDC. This community had both a men’s and a women’s CDC. They said that 65 per cent of THE PROVINCIAL men participated in their election but 100 FIELD SURVEY REPORTS per cent of women participated in theirs.

252 6.3 Functioning of the CDC in type of scheme does not in fact meet the eli- relation to the whole community gibility criteria, though independent generation schemes do, but the villagers did not General understand the difference. However, as they In Chogha-e-Sofla the CDC leaders said, ‘through discussions we convinced described how their mixed CDC functions. those who had different opinions.’ They The members of the CDC meet on Fridays, rightly saw this process as a successful once a week or fortnightly. The respondents exercise. said that all 15 members are active, but it is difficult to bring them all together for the Project implementation CDC meetings, as they may be out of the In Chogha-e-Sofla the CDC said they had village. provided all the resources for the project: labour, materials and 10 per cent of the cost. The two women members bring up issues They had recruited labour from the whole relating to women, but women in the community to give everyone a chance to community ‘cannot participate’ (for cultural earn daily wages and had only had to hire reasons) in the CDC meetings, but can meet one skilled worker from outside. They did individual members of the CDC who are not have any significant difficulties in elders or relatives of the women CDC agreeing on the implementation. The CDC members, to raise their problems. were monitoring the work jointly with the FP. The head of the CDC was almost con- Minor problems in the separate villages are stantly on the site and other members came dealt with by their representatives, but from time to time. The maintenance of the some issues are referred to the full CDC for wall is to be funded by community contri- resolution. butions to a special account.

The CDC had recorded all its financial trans- The general, and hopefully long-term, actions and kept one file for documents benefit will be to save the village from relating to the project and a second file of seasonal floods and the damage they cause; documents recording other issues, such as that is why it was the first priority of the mutual agreements between parties to a community. Irrigation channels and the dispute resolved by the CDC. However, they tailoring course (for women) to be imple- did not keep minutes of their meetings. mented with the rest of the money will also have wide benefits in the community. The community as a whole (most participated) had spent 10 days prioritizing their In addition to the NSP the CDC has needs and making project plans. Agreement approached some NGOs and government was reached by consensus. departments to fund projects, so far without success. However, the CDC will be facilitat- In Dour Robat the functioning of the CDC is ing a Ministry of Agriculture loan scheme for still being consolidated. (Only the men’s seed and fertilizer to farmers.They had CDC was interviewed and no information made these contacts in response to was given on the women’s activities.) The requests from the community. 10 electedACKU members were all said to be active. They were keeping minutes of their meetings but as they had not started the 6.4 Relationship between project had no financial records. the CDC and government In Chogha-e-Sofla (Khan Abad District) they They felt the CDC was going well as they said communication with government had completed the project plan and (clearly thinking in terms of local govern- submitted the proposal. The process had ment) had not been encouraging so far. not been without difficulty. After listing the They described the relationship as ‘not very needs identified by the villagers, it had been bad’ and hoped the Kabul conference might relatively easy to agree, in a general meeting make a difference. They also thought other with the FP present, on providing clean ministries should recognize the CDC. drinking water for the whole community. However, they thought the relationship Then another NGO constructed some tube would only really improve if the govern- wells and the villagers realized that they ment recognizes (i.e. officially) the CDC as would need less money for the NSP scheme, community representatives. ANNEX A8: and some wanted to change the project to KUNDOZ PROVINCE link the village to the electricity grid. This In Dour Robat (Chardara District) the CDC

253 leaders were very circumspect in their 6.6 Capacity of the CDC answers about government. They had had two meetings with the district administra- Able to continue without facilitation tion asking them to contact the CDC about Assessing the CDC on the basis of the above community issues, but apparently the criteria, which are in turn based on the CDC district authorities prefer to deal with other profile indicated in the Operational influential figures in the village. The Manual, we can conclude that the more researchers concluded that the CDC is very established CDC in Chogha-e-Sofla will reluctant to have any close relationship with probably be able to continue without facili- district government. There seems to be ‘a tation after the completion of its outstand- huge lack of trust between the CDC and the ing projects, notwithstanding some continu- district administration’. The CDC them- ing deficits. The CDC had established its selves said that ‘transparency should be leadership of the community, though still encouraged on both sides to improve the lacking full recognition from local govern- partnership’. ment. It showed transparency and inclusiveness in its dealings with the community, [The householders interviewed were more including developing mechanisms for explicit, accusing the district officials of cor- including women, within the prevailing ruption and demanding bribes. cultural constraints. It was able to keep Householders in the matched non-CDC accurate and transparent records of its community (Mangal Abad) in the same financial dealings and of the arbitration of district, also spoke of local government cor- disputes. It seemed to be successfully ruption.] managing its project and was actively pursuing new ventures and taking on other responsibilities consistent with its status as 6.5 Relationship between ‘sole representative’ of the community. the CDC and the FP In Chogha-e-Sofla the CDC leaders stressed Able to continue only with that the FP had guided them in the initial difficulty without facilitation stages and is now assessing their documen- Dour Robat CDC was clearly at an early tation but that it was the community that stage of development, but had made con- had implemented the project. They said the siderable gains in governance. It appeared FP had given training in procurement, to be negotiating a successful transition record keeping and general information from Arbab rule to representative leader- about NSP. Each course was for one day. ship through the CDC and was successfully When asked what other support the FP had uniting the different groups in the given they said, ‘Not very much.’ The community. (A women’s shura had appar- researchers commented that the duration ently been established but it was not of training seems very limited. [They also possible for the all male research team to did not (like other CDC) talk of the FP as evaluate it.) The CDC had conducted the being available to give advice. The FP project selection in a participatory and staffing levels may have something to do transparent way and seemed to have the with this. See FP Capacity above.] basic skills to keep written records. ACKUHowever, they had yet to prove themselves They did not know about the complaints in financial and project management, and procedure but had in any case had no had a very difficult relationship with local problems with the project. government. On this basis we can conclude that it would have great difficulty in contin- In Dour Robat they thought the FP had uing unless it continues to receive adequate played an important role in raising support through the project implementa- awareness in the community and overcom- tion phase, and in its relations with local ing people’s scepticism about the NSP. They government. too had had the one day training sessions and ‘nothing more’, but thought it was both ‘necessary and useful’. They did not know about the complaints procedure. As their 7. Community without a CDC project had not started they could not add any more. General community profile Mangal Abad in Chardara District matches the Dour Robat community in terms of size THE PROVINCIAL and location in the same district and similar FIELD SURVEY REPORTS

254 sources of livelihood. However, Mangal Their negative attitude to government was Abad is a distinctive community in two due on the one hand to the same problems respects: it is made up entirely of returned of corruption noted by the Dour Robat Pashtun refugees, all of whom belong to a residents and, the researchers suggest, a few extended families who mostly kept common mindset of war-affected people to together in exile in Pakistan; their village is a expect more from aid agencies than govern- new settlement recently registered with the ment. As a result they mostly try to resolve district administration, apparently with a problems themselves within the village. view to joining the NSP. The villagers seem to be more united than other communities However, they were very eager to be because they all belong to one tribe and included in the NSP and set up a CDC have lived together as refugees. Decisions in because they perceived it as a way of the community are therefore made by a ensuring project implementation without number of elders representing the different corruption. [Probably, like several of the families connected by blood ties. householders, they were very well informed about NSP and had actively found out about Seven community leaders were it.] interviewed and gave the following profile of their community. The total population was estimated at 2000 (the researchers felt this was inflated with a 8. Household Survey view to attracting more funding), but the number of children was put at 300 (at the same ratio of children to adults as in the 8.1 Chogha-e-Sofla, households interviewed, that would suggest Khan Abad District a much smaller population, of less than Community with an established CDC 1000). Probably both figures are inaccurate. There were said to be 10 widows and 15 Summary of results disabled persons (as in other communities, it is not clear how they counted these). 8.1.1 The sample They said the main source of livelihood was Seven representatives of households (all from wage labour (estimated at 65 per cent) men) were interviewed. Compared to the and the rest was earned from farming. profile of the community given by the CDC, the sample is reasonably representative in most respects. 7.1 Existing governance There is no formal community government. The householders, like the majority of the Normally the elders, representing the village, make their living from agriculture (7, different family groups in the community, including one landless family of agricultural meet to resolve issues as they arise, but not labourers). Two also kept livestock. All but otherwise. one family considered their economic status as ‘middle’ or average for this generally The community has returned recently and poor community. The one poor family was the eldersACKU have been making approaches also the smallest family: a man and wife with individually to government offices and 3 children, including one with mental NGOs to get assistance, but without illness. The average family size was 10 with success. They have not even, as they were an average of 6 children, so that most had led to expect, received assistance from the more than two adults working or assisting international community with resettlement, with childcare. This may account for their especially in rebuilding their houses. perception of ‘middle’ income status. However two of these also had disabled adult dependents. 7.2 Relationship between the community leaders Five of the 7 respondents were Pashtun (70 and the government per cent as in the community as a whole) and two Uzbeck (20 per cent in the general We do not have much communication population). No Tajiks (only 10 per cent in with government because we do not the general population) were interviewed. expect them to be supportive. ANNEX A8: There is no partnership between the There are three village clusters in the CDC, KUNDOZ PROVINCE government and the community. but it is not clear if the researchers sampled in all three.

255 8.1.2 War experience/post-war ered the starting point (the first contacts or The village was in the front line of the the election). fighting between the Taliban and Northern Alliance (mentioned by 3). One respon- They had all voted in the election but two, dent’s brother with his wife and children for example, had no knowledge of the were killed, another’s father was also killed. electoral commission. The others were Six of the 7 fled the fighting and were aware of one or more outside agencies displaced for several years. One had his being involved in setting it up. One simply house destroyed by a bomb, another’s was said ‘people from outside’ organized it. looted. Another lost his livestock. Another said it was organized by people from Kundoz and village representatives. All agreed that things were getting better. Another said it was the FP with other There is greater security (2) but on the people, he wasn’t sure who, but it was a free other hand, though they can work they get election. The FP with village elders, and the very low returns on their agricultural MRRD with village elders, were mentioned produce (2). One, the only one who consid- by the other two. ered himself poor, thought that things were improving because there is development in Rather than describing how decisions were the country. made in the past, the respondents all described in detail the NSP process of listing 8.1.3 General understanding and awareness and prioritizing needs to make a decision on The respondents described the CDC as a the project to implement. It is clear from village council, council of elders, represen- this that they and the whole community tative body or NSP council, and most said its were actively involved in this process. One purpose was implementing development described in detail the disagreement with a projects for the community. While they did, minority who wanted a road but were when asked, recognize the social value of outvoted by the majority. uniting the three villages in one CDC, they did not seem to fully appreciate its signifi- 8.1.5 The CDC today cance for governance, especially in representation to government and outside Functioning of the shura agencies. Most also took little interest in the The majority of the respondents did not working of the CDC once they had elected seem to be following the meetings of the it, and so long as it ran the project efficiently CDC very closely. Two did not know when and fairly. they meet. One took an interest when they were implementing the project but now The majority also did not fully understand does not know. One guessed monthly, how the programme came to be set up or another thought fortnightly. A CDC member who runs it. They did not associate the said it was weekly or every ten days, often DRRD with central government or clearly after Friday prayers. Only one other respon- understand that the NSP is a government dent knew this. programme. They also had little or no knowledge of any other government plans. However, they all thought it was working They therefore had little feeling of national ACKUwell. Two mentioned that it consulted and solidarity. informed the villagers/worked as they wanted. One was unsure if it would On this evidence, it seems that the project continue to function well (be able to get implementation and creation of the CDC as funding) in the future. a project management body was successful. However, although there were clearly gains They all saw the CDC as leading the in community governance as a result of community but three also referred to elders uniting the villages and their respective either in the CDC or cooperating with it. elders, the governance and particularly the One said the head of the CDC, due to his national solidarity objectives have been less education and family background, was the successfully realized. leader, with the support of the other CDC members. 8.1.4 The history of the CDC The respondents assessed the time the CDC (The researchers noted that within the had been functioning as one year (2) or CDC, the group of office holders were the more than a year (2) or two years (3), most influential and well informed. THE PROVINCIAL probably depending on what they consid- Ordinary members, such as the one inter- FIELD SURVEY REPORTS

256 viewed in the survey, did not fully under- understanding that the programme was a stand all that was going on.) government initiative rather then an NGO. Two respondents simply didn’t know, one The CDC member and one other said the because he was ‘too poor and too busy’ to CDC had good relations with the district know. government and that it also contacted them from time to time. The others all said they Financial management didn’t know, but either supposed they Four respondents, including the CDC might or thought they should. member, said the finances were managed by the CDC, specifically the Treasurer, who Projects/priorities then informed the villagers and posted Having clearly participated in the selection information in the Mosque. of the project after lengthy discussions, all the informants except one said they had The two respondents who did not know participated in the project. Participation for where the money came from but were some was in the form of paid labour (the simply glad to be working, also showed little researchers noted they were overwhelmed interest in knowing how the CDC managed at receiving a daily wage and by the pay they the money. One respondent was able to received). Two others, presumably better off describe the financial arrangements in full. than the rest, paid their share of the 10 per As regards the use of the Block Grant, all cent community contribution to the project except the two that showed no interest in costs but did not work. One of these was a the finances were certain that it had been member of the CDC and said he partici- spent as decided on the project. Two were pated that way. One worked as paid labour aware that money was left to be spent on and paid the 10 per cent. other projects.

The general view was that there were few 8.1.6 Impact of NSP/CDC problems in getting almost everyone in the For 5 of the respondents the CDC is seen as community to participate, in particular all a community council for implementing those who needed paid work had the projects. Two, including the CDC member, chance to participate. Reasons suggested emphasized its role in governance and for not participating were: illiteracy, lack of increased social unity. ‘It is a body that has time and that some objected to paying the united three villages.’ 10 per cent. One respondent discussing this said the CDC had made every effort to All the respondents mentioned the unifica- include everyone. The CDC member noted tion of the villages in one CDC as an that participation was good in one village improvement resulting from the NSP cluster, but the other two had problems programme (1) or in answer to the direct with participation. question about village unity (7). One suggested there was still more to do in this The respondents were unclear about any respect (see comment on participation future plans of the CDC, including the CDC above). member. He was certain they had not approachedACKU any other organizations; the Four referred to the completed floodwall others did not know. However, two project as a general benefit but most, supposed that since other projects, a water thinking of their own lives (especially their intake and a tailoring project for women, economic conditions), thought it had not had been discussed, these might be imple- had much impact on their lives. ‘The NSP mented with the money remaining in the has just built the wall but it has not changed NSP fund. my personal situation.’ As another said, ‘it is still new.’ The researchers realized from the responses of the informants (including the Five respondents said that the improved CDC member) that they were not clear that security and freedom of movement was the the programme was initiated by govern- main other factor that had improved their ment. They knew that it was initiated by lives. The other two could not think of ‘Rural Development’ (in one case that ‘Rural anything else. Development’ got the money from World Bank) but they did not associate it with the 8.1.7 Perceptions of national solidarity ANNEX A8: national ministry or government. One The impact of the programme in the village KUNDOZ PROVINCE respondent said it was NSP, also without does not seem to have increased the

257 villagers’ awareness of government. Six of 8.2 Dour Robat, Chardara District the 7 said they did not know anything about Community with a recently government plans. One said it was because established CDC he is illiterate, another because he is poor and too busy. Summary of results

This is probably why most were not 8.2.1 The sample confident that government had much Eight household representatives, selected interest in their community, using phrases from the general population (7 men and like ‘I hope it is. We receive promises but one woman, possibly a widow?) were inter- little is done’ (1); ‘It seems to be’ (2). They viewed. Three other householders (men) probably also held this view because, as the were contacted through the Youth researchers realized, they are unsure if the Committee. The sample appears to provide NSP is a government programme. a reasonable cross-section of the community when compared to the profile One of the respondents clearly did under- given by the CDC. stand that the government is responsible for the community development, unlike Households had from 8 to 15 members previous regimes, and so was confident that (average 11). Only two were nuclear, each it is interested in the community. consisting of a couple with six children. The rest of the households had several adults Another, who appears from his answers to and often more than one generation living be generally better informed, knew of gov- together. This means that in all but one ernment schemes for road building and case, where both the interviewee and his electricity generation as well as some wife were war disabled, the households had projects in Kundoz. He therefore also more than just two adults to support and thought the government is interested in his run the household. However some of these community. were also supporting disabled or sick adults: one family has a man and a woman physi- 8.1.8 Confidence in the future cally injured in the war; in another a young When asked what would most improve their woman was mentally disabled in the war lives, most thought in terms of assistance to and the widows of two sons killed in the war farming to improve their livelihoods. Four live in the same family; in two others a sick mentioned seed and fertilizer distribution adult is supported. (The CDC profile listed by government to farmers (it seems they 17 disabled and 26 widows in 263 families, had heard rumours that this might happen), so they are either over-represented in the and one mentioned the water intake for irri- sample or under-recorded.) gation, which was the second priority infrastructure project. Two others thought in In two households all the working adults terms of province-wide development: ‘If the were farmers. One of these also had government reconstructs the Khan Abad livestock and consider themselves ‘rich’ electricity project it will create jobs and compared to their neighbours. Two others produce enough energy for the whole supplemented income from farming with province.’ One offered no ideas. ACKUwage labour and a shop. Several households had no dependence on agriculture. One All the respondents expressed cautious was supported by salaried income from gov- optimism for the future, most because they ernment employment and teaching, could see some positive changes and they another by a doctor whose son had worked expected this gradual improvement to as a labourer but was unemployed. In a continue. One said the increased freedom third the husband ran a market shop and and security alone made one feel more opti- worked as a night guard. All these consid- mistic. ered themselves of ‘middle’ income.

Four households depended on daily wage labour. Two of these described themselves as ‘very poor’. In one case, where the informant worked as a school guard while his son worked as a labourer, he described the family as ‘poor’. The fourth family with 4 able adults was described as a ‘middle’ THE PROVINCIAL family. FIELD SURVEY REPORTS

258 In terms of income the sample is therefore community governance and solidarity. The broadly representative (7 average house- general perception was of its role in imple- holds, 3 poor and one rich). The three main menting community projects. types of livelihood mentioned by the CDC in this rural community close to the urban The political leadership of the CDC was also area (agriculture 60 per cent, salaried 20 per not assured. A number of householders still cent and waged 10 per cent work) are also regarded the traditional leaders as those represented (though not in the proportions who head the community, particularly in suggested by the CDC). dealing with government.

All those from the general population They were aware of the process of project sample were ethnic Pashtun. The three selection even if they had not participated others’ ethnicity was not recorded. (The and approved the choice. They also knew community profile given by the CDC that the Block Grant for the project had not recorded 70 per cent Pashtun, 30 per cent yet been received, but for that reason had Tajik. Turks were also mentioned by one no knowledge of how the finances were to householder.) be managed. However, most did not clearly understand that the money was distributed 8.2.2 War experience/post-war through a government programme, partly The village was subjected to attacks and because they did not associate the DRRD bombardments from Soviet forces and with government or understand the role of villagers were then also under the control of the FP. local warlords. Five of the respondents had a number of family members killed in the In fact they had little knowledge of govern- Soviet attacks. Three had injured family ment programmes in general and, as a members, including a man who was himself result, little belief in it. In this regard the disabled. Their property was also attacked: programme had yet to have any impact for 6 had their houses destroyed, one his shop national solidarity in this community. Only a as well. Three were looted. These incidents few believed the government is interested happened more than once: 3 times for two in them. This negative perception was householders and twice for another two. strongly influenced by the corruption and Not surprisingly most abandoned their incompetence they had experienced in homes at some time: 5 within the country, their contact with the district government, and two for several years as refugees in as well as their lack of knowledge of national Pakistan. In addition to the attacks from the government. Soviet forces, three mentioned being compelled to join or pay for the militias led On the other hand, the majority did by local warlords against the invaders. recognize the CDC as contributing to community unity and solidarity. All agreed that things were to some extent better since the war ended. The security, or 8.2.4 The history of the CDC at least the absence of war, was the main Apart from one respondent, who said no improvement cited (7) as well as freedom one had ever explained the CDC to him, the from fearACKU and bullying by warlords (4). For respondents all understood that the CDC some this meant they can now work or was a village council that works for and is resume their lives (3). One had built a small accountable to them. Most thought its main house; another could now live in his own purpose was to implement projects. One home and not pay rent, as in Pakistan. appeared to see it as a project management However, none of these thought their committee and said there might be ‘other economic conditions were satisfactory. Two CDC’ to implement other projects. Three thought things were generally improving, others clearly understood its role as a devel- and one of these spoke of the reconstruc- opment council for the general recovery of tion of roads and other infrastructure as a the community. Three also saw that it has a sign of this. role in ‘bringing people together’, promoting unity by including Pashtun, 8.2.3 General understanding and awareness Tajiks and Turks, and by not allowing The majority of householders understood fighting. the function of the CDC as a representative development council and were aware of its Apart from the respondent who said he was ANNEX A8: activities and function. However, only a not informed and had not been asked to KUNDOZ PROVINCE minority recognized its role in promoting vote, they were all aware that the CDC had

259 been set up in the last six months. Two had It is clear from the responses to the not been in the village at the time of the question, ‘Who leads the community?’ that election but one of these said his father had the authority of the CDC is not fully estab- voted. The other 9 had all voted, including lished. Three respondents named two the woman respondent, and one said all his brothers as Arbabs, while two other respon- family had voted. However they had less dents mentioned other names, one as Arbab understanding of how the election was run. and as the other as leader of the Pashtun One knew that there were 3 members of the community, stressing that they are not CDC commission from the FP and three village members. Two cited the head of the CCD, representatives. Two others were aware of one because of his role as CDC head but the FP representatives, and one that there also because he is the director of the high were outside observers. The others clearly school. Two described what is probably the did not know, and one said he had not seen, real situation: the CDC leads the what was done. community, but there are also influential figures outside the CDC, who are the tradi- As regards the previous governance of the tional leaders. Two other respondents were village most (9) spoke of either ‘village quite reticent about answering this elders’ or a tribal council, but made it clear question. They avoided admitting the role that there was no process of identifying pri- of the elders, without naming the CDC head orities. One suggested this did not happen as the overall leader of the village. because they had no resources to do anything. Others described the council as However, two of those who did not dealing with ‘issues’ and resolving conflicts, acknowledge the CDC’s overall authority and one suggested that everything had to nevertheless saw that it is ‘working for the be referred to the governor, which took a unity and welfare’ of the people in the lot of time. The woman said, “We had a tra- community. It seems that the traditional ditional community council which was leaders were still the ones who work with responsible for decision-making at the the district government while the CDC and community level, but definitely it was not as its supporters think it should be doing so, organized as the NSP one.” but are not sure how. (Several later described the district government as One respondent replied to this question by corrupt, see below.) It is clear from later describing the NSP process: how the responses that none of the respondents was community identified their needs and then hostile to the idea of the CDC, though still decided in a general meeting on the priori- waiting to see how it might work out in ties. practice.

8.2.5 The CDC today Their understanding of the origin of the NSP was still very vague. Two respondents Functioning of the shura did not know the source of the funding, Since the CDC has not long been estab- supposing it might be an NGO. Two said lished and is not yet implementing a NSP started the programme, but had no project, the respondents mostly reserved idea what NSP is. Two were adamant that judgement on its performance. Two said ACKUwhoever started it, it could not be govern- they didn’t know how it works. The head of ment because, as one said, in that case the the CDC member said it was too soon to money would have been given to warlords judge. Six seemed to think it is going well or district administration. He believed now and trusted it so far, but were waiting therefore that the fund was given by foreign to see how it handled the project. One governments to the CDC. Another thought described the apparently successful process GRSP had started it with money from Kabul of choosing the project with the whole (source unknown). community. Two did actually associate it with govern- It seems that the CDC meets frequently but ment: one simply named the MRRD as not necessarily to a fixed timetable. One responsible; the other said it was a govern- said the CDC meets once or twice a month, ment programme with an NGO implement- and the majority of the respondents were ing partner. aware that the meetings took place with this kind of frequency. Four however said they Projects/priorities did not know when it meets, one stating Since the Block Grant had not yet been THE PROVINCIAL that the members didn’t normally inform received, project implementation had not FIELD SURVEY REPORTS the public.

260 started. However, no one seems to have an elected and accountable council as an been dissatisfied with the way the project important benefit. was chosen or with the decision made. Those that commented said people had par- 8.2.7 Perceptions of national solidarity ticipated in the CDC so far, and expected The villagers had almost no knowledge of that they and others would participate in any national plans of government. Eight said the project. they knew nothing about it. Some made excuses: being an illiterate woman or too Two said they had applied to various NGOs poor and too busy and not having a radio. before to get funding, without result. One Two respondents did think the government said the elders had got one NGO to dig a had plans to rebuild the country, build cities well. Obviously, it was too soon for the CDC and asphalt roads, but had no knowledge of to be planning further projects. actual programmes.

Financial management The respondents’ view of government was Since the money had not yet been received, in fact mostly cynical, as a result of their they could not say how it was managed, experiences with the provincial and particu- though one knew a treasurer had been larly district officials, who 4 described as chosen by the CDC. Another said: ‘We have corrupt; taking bribes for example, when many illiterate people in the community asked to resolve disputes. Another three and would ask the CDC to give time and suspected that government promises would verbally explain how the grant is spent, and prove empty. Only if work started in the give a chance to the poor people to work village would they believe in it. and get daily labour.’ Others thought national government was 8.2.6 Impact of NSP/CDC interested in the community, though one All the respondents, including those who said she didn’t know why it worked so still acknowledged the traditional leader- slowly. Another cited literacy classes in the ship, had a positive perception of the CDC. villages as evidence of government interest For one its purpose was simply to and one said ‘If it was not interested, you implement projects, but most understood would not have been asked to interview that it is a new form of governance: me.’ ‘something good...different from what we had before’; ‘to work for the people’; ‘to 8.2.8 Confidence in the future consult the poor and help them’; ‘our own Most of the respondents thought material council that hopefully will work for us’. Five improvements would most change their respondents saw its main purpose as lives. Four mentioned electricity; 3, road promoting ‘unity and love’ at the village construction (as a means of access to jobs level and removing antagonisms between and business) and one clean water. One ‘nations’ in Afghanistan as a whole. thought money, so long as it was legally obtained, would make most impact. Two When asked further about the impact on were concerned with securing a better, community unity, all agreed that it was independent livelihood through skills improving.ACKU Three villages, and three ethnic training: ‘If government found vocational groups (Pashtun, Tajik and Turks) were training courses for women, especially for united in the CDC, and the CDC was widows, the women in this community can mediating disputes. The influence of be self sufficient in the next few years.’ Two warlords had been diminished. One needed assistance with basic needs such as estimated that ‘70–80 per cent of the racial, building houses and securing enough food. tribal and language biases’ had been Only one cited improved local governance removed. Others were more cautious in through greater unity and replacing the their claims, saying it ‘seems’ better than corrupt and incompetent district govern- before or that the grudges would take time ment personnel. to be completely removed. However, two others were not optimistic Most thought it was too soon to see any about the future because they feared there other changes, but one claimed that one would be no improvement in governance. result had been large numbers of women One said government, especially at district enrolling in school, and a general impact in level, is too full of ‘corrupt, illiterate and ANNEX A8: promoting education in the area. One Jehadi people’. The other feared that the KUNDOZ PROVINCE specifically mentioned the fact that they had corrupt Maliks would be elected to the CDC

261 and would just continue as before to appro- and looted and they fled to Pakistan at an priate any assistance. early stage in the war, where they remained together as a community. All the others expressed optimism for the future, because there is no war and they They had only recently returned (several have seen some change in the last two or 3 said two months ago). UNHCR apparently years. One simply said he is optimistic assisted some with travel costs and one said because he believes in God. he had been compelled to return against his wishes by the Pakistan authorities. They had received no other assistance and had 8.3 Mangal Abad, Chardara District problems of shelter. Their houses had yet to Matched community without a CDC be rebuilt; meanwhile, one had to rent accommodation and another spoke of living 8.3.1 The sample in tents. Representatives of 8 families (all men) were interviewed. Most families were rather The main improvement was the end of the small, with less than 10 members. Five were war and greater security, which allowed nuclear families of a couple and their them to work. They had yet to experience children (in one case, one child). Another any material improvement, but 5 said they family unit consisted of a parent, one child expected things to get better after they had and two elderly sick grandparents. This got settled. One specifically mentioned the demographic pattern could well be because fact that he could travel to get work without they are a community of returned refugees. any ‘racial or ethnic discrimination’. Two However, as they explained, they did all had decided to return because they judged belong to 4–5 extended family groups that the general situation to be better under the made up the community. In the two non- present government. nuclear households (with 21 and 9 members), able adults outnumbered 8.3.3 General understanding and awareness children and men outnumbered women, Experience as refugees, and the assessment but they assessed themselves as ‘poor’, they made of conditions in the country while the smaller families described them- before returning, seem to have given the selves as ‘middle income’. In all there were householders a good general awareness of 3 families who considered themselves as political and economic conditions, though ‘poor’ and 5 as ‘middle’. no details of government policy. It also enabled them to observe and find out about The poor families relied on agriculture NSP and its advantages. However, their and/or casual labour for a livelihood. One experiences led them not to expect much of middle family were also farmers but the government, to realize that it would take others were drivers, though one was time to re-establish themselves and to think currently unemployed and one also has in terms of eventual self-sufficiency. some land. Also as a result of how they stayed together Apart from a sick wife and elderly parents as a community in exile and returned there were no disabled dependents, and no ACKUtogether, they are essentially already a widows were mentioned. united community that could easily benefit from NSP. All the respondents were Pashtun. In fact there was no indication of any other ethnic However, one householder was aware that group in the community. the authority of the traditional leaders is very strong (they are highly respected) and The sample seems broadly compatible with would have to be reckoned with before a the information given by the community CDC could work. leaders interviewed (though the researchers had some doubt about the pop- 8.3.4 The community today ulation figures given). There was no doubt about the leadership of the community. The respondents named or 8.3.2 War experience/post-war referred to three elders (those interviewed The families all shared the same war experi- by the research team) whose leadership ences. It seems, as one said, that they were they clearly accepted. One described them ‘oppressed by both the Soviets and the as ‘talented custodians, honest and sincere’. THE PROVINCIAL Mujahideen’. Their homes were destroyed They also had no hesitation in saying the FIELD SURVEY REPORTS

262 community was united. Accounts of 8.3.5 Perception of national solidarity community decision-making were also con- As described above, several respondents sistent. The elders took the decisions, but were attracted to the NSP objective of after a consultation process in the case of national unity and were generally aware of important issues. All the respondents also the programme. However, they had no expressed willingness to participate in knowledge of any other government plans. community work or said they already had Five said they knew nothing of government participated. plans. Two, without having any specific information, supposed the government has This harmonious picture of the community plans to develop the country. Another said is probably largely true, given their long they had seen a lot of (positive) changes in association and family ties; however, they the last three years and hoped the govern- were probably also (see below) eager to ment would do better in the future. This impress because they wanted the NSP suggests they have some expectation of the programme in their village. As former national government. refugees they were probably also accus- tomed to presenting a united front to aid However, when asked if the government is agencies. interested in the community, all thought it had shown little interest so far. Four said Their replies when questioned about their they had received no assistance and one leaders’ relations with the district govern- said they had not even been asked what ment suggest that their experiences were their needs are. Another said the govern- similar to those of Dour Robat, though most ment must have been interested because were reticent on the subject. Most said they asked the refugees to come home, but there was no contact or that there might be he hoped they weren’t forgotten. Two said some. One said they dealt with them on they would believe in the government if village issues, another to resolve conflicts they were assisted. Three were quite bitter the elders couldn’t solve. One said they did about the corrupt practices of the district work with them, but ‘received no compen- administration, but one differentiated, sation’ (that they were not in their pay?). saying that the ‘senior people’ in govern- One respondent was completely outspoken ment were ‘good people’ but the ‘junior’ and said that they didn’t work with them are corrupt. Several others suggested in because they did not trust them. Several other responses that they had some faith in were more outspoken later when asked national government, though not the local their personal views of government. administration.

As regards assistance, they all said there had 8.3.6 Confidence in the future been nothing so far. Three were aware that Five respondents thought they needed applications had been made (by the elders) immediate help to build houses. One without success. Others thought no suggested that after that they would recover approaches has been made. their livelihoods and be self-sufficient. Roads, schools and a clinic were each They were all keen to get the NSP mentioned as needs by 3 respondents and programmeACKU in the village. 3 had seen the clean drinking water by two. One respon- projects completed in other villages. One dent put electricity as the next priority after thought it was some kind of agency to assist housing. refugees but 4 spoke of it as a programme for national unity, aimed at removing Two respondents saw their best hope for grudges. Another described it as a the future in the NSP. One put creating a programme for ‘rehabilitation, reconstruc- CDC as a first priority, and another said he tion and welfare’. One gave a completely hoped part of the NSP budget could be used accurate summary of the CDC aims and for women’s vocational training and literacy, functions. This suggests that they had been because this would help the population, taking a close interest in NSP since their ‘which is deprived and unaware of their return and had observed its advantages. rights’.

However, one respondent did see a possible All but one respondent expressed optimism difficulty in establishing the CDC: if the for the future. The main reason for this was Arbabs saw it as replacing their authority, the end of the war, security and people ANNEX A8: they might obstruct it. working together and other signs of positive KUNDOZ PROVINCE change, for which two gave the government

263 credit. One simply took his optimism from his faith in God. One felt confident there would be no return to war because people had learnt their lesson.

The respondent who was not optimistic was the one who had been forced to return from Pakistan before he was ready. He felt the government was still unstable and there might be a reversion to war. He claimed that many rich people were not yet prepared to return permanently, only to make money from the reconstruction, while encouraging the poor to return. He also saw no tangible results from the huge amounts of international aid given to government.

ACKU

THE PROVINCIAL FIELD SURVEY REPORTS

264 Provincial Field Research Findings A9 Nangarhar Province with feedback and analysis from communities in Laghman Province

1. Timing and scope of the research 4. Eng. Aminuddin Bidav, MRRD Director for Laghman Province The research team1 worked with the NSP in 5. Dr. Ahmad Noor Habibzai, Nuristan Nangarhar Province between 20 October Province MRRD, Regional advisor and 13 November conducting semi-struc- 6. MRRD/NSP Staff tured interviews, focus group activities, 7. Abdul Majid, NSP Monitoring and observations, household surveys and Evaluating Officer (based with Eastern project appraisals with all the Stakeholders Region Manager – counterpart to A (see below, Section 1.1), but principally: the Sattar, but uses OC office) Provincial MRRD, the Provincial OC, the FP, 8. Eng. A Sattar, Director of NSP MRRD communities with a CDC and a community Nangarhar without a CDC. NSP Eastern Region Offices, Jalalabad The team also made a brief comparative visit 1. Ernst Bentzein, Regional Manager, to Laghman Province from 6–12 November, Eastern Region (Nangarhar, Kunar, found in Annex 1. Nuristan, Laghman, Logar and Khost) 2. Eng. Lal Agha, Provincial Team Leader 3. Eng. Zalmay, Deputy Regional Manager 1.1 Stakeholders consulted East 4. Gh. Sakhi Razaqi, Training Coordinator, Nangarhar Eastern Region

Facilitating Partner: Other stakeholders BRAC Eastern Office, Jalalabad 1. Horst Croessmann, German Agro 1. JahangirACKU Hossain, NSP Manager Action, Nangarhar 2. Md. Nazrualislam, Provincial Manager 2. Karin Traenkner, German Agro Action, 3. Dr. Baz Mohammed, Monitoring Officer Nangarhar 4. Eng. Uzzal Chekraborly, Provincial 3. Noel McCarthy, Site Security Supervisor, Engineer UN Office for Project Services, 5. Farzama Sader, MT Provincial Office Nangarhar 6. Sunita Iqbal, MO Provincial Office 4. Gerald Becker, USAID/DAI Alternative 7. Mirwars Cader IT, Provincial Office Livelihoods Program – Eastern Region, 8. Hamid Ullah, Provincial Engineer ex Team Leader NSP 5. Hamish Nixon, Researcher, AREU MRRD Officials, Eastern Region 6. Daud Omari, Researcher, AREU MRRD Headquarters, Jalalabad 1 Richard Jones (Team Leader) 1. Dr. Mohammad Asif, Deputy Governor, NSP Communities visited and with Khalid Shafari and Nangarhar CDCs consulted in Nangarhar Idrees Zaman. 2. Eng. Ahmad Wali Hakami, MRRD 1. Sholana, Chaparhar (including the CDCs Director of Nangarhar of Sholana, Khanan, Miagan and 3. Abdul Hadi Asim, Regional Coordinator Gulshir) of Nangarhar 2. Balla Dehe, Sorkhrod

265 3. Kooz Naza Abad, Sorkhrod 2. The MRRD at the 4. Ahmadzi, Sorkhrod provincial and district level 5. Dago, Chaparhar 6. Mano, Chaparhar (including the CDCs Key Aim: To focus on the management of of Nazier Kalay and Gradal Kalay) NSP 7. Merzaian, Sorkhrod 8. Ditawai Amerkhil, Sorkhrod The Director of the MRRD, the Deputy 9. Khankai Satkai, Achin Governor of Nangarhar and other MRRD 10.Asadkhil, Achin employees are familiar with the NSP process and explained it in detail. The MRRD felt Community visited without NSP that the NSP improved contact between 1. Bahsawal, Mohmamdara District national and provincial government, provincial and district government, and between Laghman the government and communities. As the Director of the MRRD stated ‘We at the Facilitating Partner: province level have good relations with the Maderia, Metherlan Office, Metherlan district; this has been consolidated by the 1. Eng. Baz Mohammed, NSP Coordinator jirga to legalize the CDCs. We are reaching for Laghman and Nuristan down to the communities for the first time DACAAR in Afghanistan’s history and they [the 2. Eng. Rohullah Sultan community] appreciate this.’ The MRRD 3. Koochi S. Asro maintain that they have a visible presence in NSP Laghman Office the community especially when govern- 1. Prof. Eng. M. Hamayoon Akseer, Team ment representatives come to inaugurate Leader Laghman programmes, give certificates, have regular meetings with FP/OC/CDCs and make NSP communities visited and speeches associated with the NSP. CDCs consulted in Laghman 1. Mashina The Deputy Governor of Nangarhar is a firm 2. Shertabad advocate of NSP, ‘When the community is 3. Hussain Abad empowered to move forward, the 4. Koarigi, Alingar District. community can decide everything; if they 5. Kokhi, Alingar District are empowered they can do anything as the 6. Kahoo and Chinnar Kali, Alishang community knows what is best. All pro- District grammes in the future must be run by 7. Tangi Shakarman, Alishang District CDCs; if the community selects a 8. Qala I Halim, Alishang District programme it will work. Why? Because they have chosen it.’ The Regional Advisor was under no illusions, ‘The CDCs are 1.2 Other development programmes permanent institutions that allow communi- in Nangarhar ties across Afghanistan to unite to rebuild There are two main development pro- their country.’ grammes in Nangarhar and the Eastern Region in addition to the NSP. DAI has two ACKUIt was also universally accepted that despite projects. Firstly, the USAID-funded the best of intentions there is sometimes Immediate Needs Cash for Work provides conflict within CDCs when certain people 2,500,000 labour days for projects paying $3- do not get what they want. Sometimes the 4 per day on intensive labour projects: canal traditional shuras are marginalized, in cleaning, flood protection, small irrigation which case NSP must keep the balance. and some road work. The project spends However they were not aware of the $18m over one year and USAID wants to Community-Led Development Department continue the project. In specific cases the or any complaints procedure. project will work with established CDCs. Secondly, the Alternative Livelihoods Project Out of the 41 MRRD staff there are two NSP is a broader based economic development staff assisting in the monitoring of the project which focusses on infrastructure, project and checking proposals; one is bridges, roads, intakes, private sector devel- based in the MRRD, and the other is based opment, micro enterprises, financial with the provincial OC as there is more services, gender and micro enterprise, and room in the OC’s office. natural resource management. The project THE PROVINCIAL will spend $108m over 4 years. The MRRD’s ability to manage the NSP at FIELD SURVEY REPORTS

266 the programme and district level was not 2. The MRRD are optimistic that the CDCs called into question. However, all acknowl- will be ‘the government at the district edged that they do not yet have the capacity level’ without concerning themselves to directly implement the programme. It that the capacity of both the CDCs and was widely accepted that there was a need the MRRD at the provincial level remains for more skilled staff to complement the very weak. two core NSP staff (especially engineers and 3. The MRRD is very output focussed: administrators), vehicles, and higher numbers of CDCs created, numbers of salaries for MRRD personnel. The only projects completed etc. In order for the training that the MRRD received to date was CDCs to take on a more substantial role for the operations and technical manual in the district their progress to date which was deemed to be most useful for needs to be consolidated with further clarifying roles of the relevant groups/organ- capacity-building initiatives. In the izations. headlong rush to increase output there is a very real risk that already established The MRRD are keen to integrate all other CDCs will lose momentum and any programme initiatives with the CDCs and ‘governance’ gains will diminish. cite a number of examples of other related 4. Although the MRRD are confident of programmes in the region such as the an integrated approach from various USAID, Cash for Work initiative and the ministries towards the NSP, evidence Alternative Livelihoods Programme. The from BRAC, the OC, some of the CDCs, MRRD maintain that it is easy to coordinate and national level research would and share people’s priorities with other suggest otherwise. For example, projects projects, highlighting for example that there have been delayed whilst ministries is no conflict between MRRD and Ministry of argue about whether the NSP should Public Health and Ministry of Education as be building a school, initiating an they are all in agreement with the NSP on agricultural project or questioning relevant projects. the validity of the NSP in the first place! The government, through all its In terms of actual indicators of success for ministries, does not give united support the NSP, the MRRD members concentrated to NSP despite what the MRRD in the on: the number of districts where the NSP is Eastern Region maintain. being implemented, number of beneficiar- 5. Although the MRRD acknowledge ies, sustainability of programme, accounta- that they have no capacity to directly bility of the people, and the sense of implement the NSP, their capacity ownership that the programme generates. to indirectly implement or monitor progress is also in doubt given the acute Finally the Deputy Governor concluded that staff shortages, high number of projects, he ‘would like to see the NSP cover more limited understanding of the reality and districts, so far only 5 out of 22 are covered; problems faced. As such, to comment 12 along the Pakistan border are very that there will be no problems in the isolated and must be included. Once we future when the MRRD takes over the build up our own capacity I don’t foresee NSP, is highly questionable. any problemsACKU in the future when we take over NSP.’

General comments 3. The Oversight Consultant 1. The senior members of MRRD have a at provincial level perspective on the NSP which is too optimistic and superficial. It is very Key Aims: To assess the effectiveness of the obvious throughout the course of the capacity strengthening of the institutions research that they form their opinions and staff counterparts by the OCs. Has of the NSP on the basis of their capacity-building been relevant to the superiors in Kabul and not on the basis changing implementation environment and of reality in the communities. Their only the rationale of the NSP? contact with the communities is to inaugurate projects and hand out The Provincial OC Ernst Bentzien has been certificates; these positive occasions with the NSP in various capacities since its mask many structural problems which inception. In the Eastern Regional office the ANNEX A9: senior members of the MRRD do not OC is coordinating the NSP in seven NANGARHAR PROVINCE wish, or are unable, to acknowledge. provinces with various FPs. The OC is trying

267 to push the MRRD to take over the programme but they are not prepared. The handover date is set for September 2006 but March 2007 is more likely. However, the FPs and provincial offices are working together; there is good information exchange, and joint problem resolution.

3.1 SWOT Analysis as compiled by the Provincial OC

Strengths Weaknesses

The NSP is a Security is a problem, geography makes project great idea implementation a lot more difficult, (especially in Achin as it is very mountainous) There is good cooperation with Poppy eradication (through offering alternative livelihoods BRAC and other etc) is very dangerous for any organization to be involved FPs in the Eastern in Region Non-engineering projects are problematic, as results are Speed of proposal hard to define. In addition there is no diversification of submission is good non-engineering projects, e.g. there are too many tailoring projects (many communities request tailoring but it is not Builds the capacity feasible) of the DAB Participation is very difficult especially of women; change will only happen very slowly. In some areas in the Eastern region (Achin, Chaparhar) female participation is virtually impossible

Sometimes the CDCs are not well informed about the NSP procedures and this leads to confusion and false hope

There is excessive time pressure from MRRD to get output in terms of projects and districts covered. This is at a detriment to building and consolidating CDC capacity. There needs to be more input in view of building the CDC potential

ACKU There are often delays in disbursement which can negatively affect the impact of the NSP at the community level

The limited budget for Block Grant disbursement means that some good projects cannot be funded

Some communities do not give a contribution as they should (or renege on their promises)

THE PROVINCIAL FIELD SURVEY REPORTS

268 Opportunities Threats

CDCs and NSP have Over-optimism of capability of CDCs great long-term potential Insecurity over the future of H.E.Haneef Atmar (a strong supporter of NSP); what happens if he leaves MRRD? Reinforces ‘democracy’ Lack of coordination with other donor agencies, and now there are a growing number of unlinked initiatives Must be seen as a 10–15 year process No one is really clear what is going to happen after the projects end Phase 2 should include more NSP starts at the community level but there is no district livelihood projects plan; because there is no ‘district’ the CDCs are supposed to assume the role

NSP is not linked to other villages

In some cases the linkage between CDCs and community empowerment process is non existent as elites have taken over; this could cause conflict in the future

The local government is still very weak

The problems in Kabul and the lack of MRRD capacity represent the main threats

Some communities do not understand the NSP, they just focus on the project, making community empowerment a means to and end

It is questionable how much some CDCs really participate in the process of identifying priorities and submitting a CDP when so many are illiterate and time is tight

The CDCs know the needs of the community, but the design and construction is often too difficult for the CDC to have a meaningful influence, meaning the FPs become more of an implementer than facilitator ACKU The identification of districts in which to implement NSP is not clear. Originally the NSP used vulnerability criteria from WFP. Clear identification criteria should be made available otherwise the situation will be confused

Some districts see the advantages of NSP (i.e. the physical project) and want a share of the same advantage. This ‘envy’ can cause conflict

NSP must take into consideration the opportunity cost of time for participation in CDCs and on the actual projects. Payment will have to be considered in the future

ANNEX A9: NANGARHAR PROVINCE

269 3.2 Capacity-building role of the OC the situation is improving as the NSP The role of the provincial OC is to facilitate continues to become established. the process of NSP to run smoothly. The OCs are not involved in the management of NSP, the NSP/MRRD coordinator in Kabul is 3.3 Supervisory role of the OC responsible for management. The provincial The eligibility criteria are an essential tool OC officers explain the situation to OCs in for the supervisory role that the OC plays. Kabul, who are responsible for supervising The criteria are straightforward, especially the country-wide NSP. As Bentzien cites ‘we once people realize that the NSP cannot are the link between the provincial office build mosques. However, the key issue in and the local FP and between the provincial terms of supervision is the capacity of the MRRD and the local FP’. The national OC OC to ensure that resources are delivered to provides training for rural development and the community on time. Bentzien explains: management, much of which has now been ‘FPs give the proposal to the provincial decentralized to the provincial offices. office, the engineers have a look and confirm forms and plans are in order, they MRRD staff management capacity at are then sent to Kabul for disbursement. national, provincial and district level varies. However, there are often delays in disburse- At the national level the MRRD/NSP coordi- ment, mainly due to the lack of cash in the nator acts as an intermediary between the provincial DAB and bottlenecks at the Kabul national OC and MRRD, and performs well level. Now there is a better tracking system at promoting the NSP and raising its profile so that proposals do not get lost between amongst national and international stake- the provinces and Kabul.’ holders. At the provincial level there is a willingness but little capacity to manage the It is envisaged that communities wait up to NSP, for example purchasing and procure- six weeks from submission to disbursement. ment is very difficult for MRRD as they have On many occasions however, in places like no funds for community equipment etc. Kunar, funds are disbursed but there is no Some nepotism also exists. There is no cash in the DAB; this fund transfer problem district level as such, the district MRRD con- has to be solved. Perhaps it will be better in centrate more on security issues than the future as the DAB expands to the community development. The newly provinces. legalized CDCs are likely to become the MRRD at the district level. 3.4 The role of the In terms of capacity-building a training provincial NSP manager programme has been introduced for the When FPs submit a proposal the provincial MRRD to focus on all aspects of the NSP. manager checks the submission to ensure Training must be viewed as a long-term the proposal is acceptable, with the use of a learning process; currently there is too monitoring system. The provincial manager much technical emphasis and too much also goes to the field and checks the actual emphasis on rural infrastructure. The NSP site, the accounting procedures that the FPs needs to become good at community devel- use, and the level of awareness of the NSP in opment, income generation, microfinance ACKUthe community. The provincial manger and livelihood development, but training receives direct capacity-building from the for such initiatives is difficult and their FPs in terms of NSP training. In effect the effective implementation and measurement provincial manger receives training from are also complex. When the MRRD take over those whom he assesses! the role of the regional manager in September 2006 they will also be responsible for the training component. 3.5 Future considerations According to the provincial OC the MRRD In the initial implementation of the NSP are not in a position to take over the NSP. As countrywide, as a regional manager the OC it stands the running of the NSP will be fully had to concentrate much more on the transferred to the MRRD, in which case the logistics to build up staff and office OCs (as private organizations) cannot resources rather than concentrating on the remain in a state structure. The programme intrinsic NSP. The logistics behind the NSP has been going for nearly two years but still takes up valuable time that should in much of that has been taken up with estab- theory be spent on ensuring the lishing the programme. The FPs themselves THE PROVINCIAL programme is running smoothly, although are not clear about the transfer. FPs have an FIELD SURVEY REPORTS

270 MoU with MRRD to train them but there are 4. The facilitating partner not enough MRRD/NSP employees to be at the local level put forward for that training. In the future there needs to be a programme for capacity- Key Aim: To assess the managerial role of building training for the MRRD staff. Salaries the FP and its ability to act as a channel of have improved, but many are trained and communication between the government then go to the international NGOs who pay and the community. more. The Bangladeshi NGO BRAC is the only FP The MRRD want all initiatives to go through in Nangarhar. They operate within 5 of the them and the CDCs to coordinate with the 22 districts in the Eastern Region. In other CDCs and other programmes; this is a November 2005 UN-HABITAT and German good idea but there is no capacity whatso- Agro Action will also be operating in the ever to do this. Also, the $60,000 cut off Eastern Region. Their intervention is as a means that there are lots of other result of a political desire for additional FPs community priorities that could receive to boost the roll out of NSP, and by doing so funding from other non-NSP organizations. reducing the amount of land dedicated to These should be communicated to potential poppies. donors to avoid repeating the whole process of project identification. 4.1 The role of BRAC within the NSP There also needs to be integration with BRAC understands its role within the NSP as other projects like the USAID Work for Cash identified in the Manual. The organization Project and the Alternative Livelihoods sees its role as facilitating different aspects Project. MRRD want to coordinate but it has of community development by enabling so little capacity. people to come together to identify priorities, make proposals and then implement General comments the projects. As the Director stated, ‘We 1. Much of the initial time spent since the help the people to build capacity within NSP commenced has been spent by the their communities to help them get to a OC establishing offices, recruiting staff position where a project can be imple- and building up its own capacity, at a mented and sustained.’ detriment to enabling the intrinsic NSP. 2. The OC is under pressure to roll out The community know that BRAC is working more projects at a detriment to ensuring on behalf of the government. BRAC uses existing CDCs are equipped for the social mobilizers to explain the NSP and future. This reinforces the MRRD-led their role within it to ensure that people are over-optimism of what the CDCs are clear that it is a government programme. At able to undertake. first people did not believe that the govern- 3. The MRRD will not have the capacity to ment was working for them because in the take over the NSP without continued past any developmental work was imple- substantial input from the OCs. mented by NGOs. Around the project sites 4. There is a high level of political there are signs and NSP literature emphasiz- uncertaintyACKU regarding the NSP and the ing and promoting the role of the govern- handover to the MRRD. This uncertainty ment as distinct to that of the FP BRAC. also affects the FPs. It is widely When the disbursement has been accepted, acknowledged that HE Haneef Atmar is members of the CDC are given instalments a strong supporter for the NSP; if he is from the Block Grant through the DAB from moves to another ministry, will a new the government. Periodically government minister be as supportive? officials visit the communities to reinforce 5. The OC and FP enjoy good relations, their overall role within the NSP. In addition, underpinned by regular meetings, joint the projects are always inaugurated and problem solving and an approach of training certificates distributed by govern- partnership. However the FPs in many ment officials and not BRAC. circumstances are under pressure to implement rather than facilitate the NSP; In some areas the community accuse BRAC this ultimately limits the benefits that of numerous untruths, ranging from telling the CDC could derive as advocated ISAF the location of the poppy fields and throughout the NSP, and in most cases spying on behalf of the CIA. For example ANNEX A9: is a direct consequence of pressure there have recently been night letters in NANGARHAR PROVINCE from the MRRD. Sorkhrod district claiming that as

271 Karzi/Bush/Sharon are all the same, those provinces in terms of the NSP; this they who support the government will share claim is because of poor security and an NSP their same grave. In May 2005 the BRAC national mindset that favours predomi- offices were attacked following the US nately infrastructure projects for which their soldiers’ desecration of the Koran in regional OC skills are biased towards infra- Guantamino Bay, and staff have come under structure, and not poverty reduction/ attack in the districts from IEDs. However, income generation.3 relations with the majority of the communities are good, but BRAC feel acutely vulnerable to any external occurrence involving 4.2 BRAC’s capability and limitations ISAF and especially America.2 in relation to programme demands There are several key factors for success of At the province level relations with the the NSP. These include management and MRRD are generally positive. Every week capacity, training, community participation, the MRRD/OC/FP meet to solve problems the interpretation of eligibility criteria and and make collective decisions. However, the an understanding of the consequences of capacity of the provincial level MRRD is con- the termination of NSP. sidered to be weak; although they have more resources than any other provincial 4.2.1 Management and capacity ministry there remain significant shortages BRAC is an international NGO with a great of technical and physical resources. deal of expertise in community development. There are 127 staff (21 women) who At the district level the MRRD is also consid- are allocated to the NSP. BRAC did not have ered to be weak. The MRRD does not have to increase its capacity as such, but had to an office at the district level so there is a gap tailor its resources from existing training and contact between the community and programmes; it did not have to recruit more local government is limited. There are only staff as they already had specific expertise in district administrators, but these are more relevant areas, e.g. engineering, livelihoods concerned with security than development. and project management. However, as the This is a structural problem within all NSP Manager stated, ‘We have often found Afghanistan and is the rationale for the that we spend a great deal of time and newly created CDCs becoming the local money on training staff who then promptly government at the district level. The district leave for better paid jobs within the NGO personnel have inadequate access to sector. We are philosophical about this and transport and a shortage of skilled staff, only acknowledge that at least our training is having two engineers to cover five districts. having a trickle-down effect so that in some In addition, BRAC complain that ‘new way the country is benefiting.’ 2 The Nangarhar region district governors require a great deal of and Jalalabad in particular are time to be brought up to speed with the There are however significant problems garrisoned by an American-led NSP’. associated with processing the high number ISAF force. of projects. On occasions BRAC has to wait The gap remains between the community up to six months for the Block Grant to 3 This overemphasis on and local district government but the arrive, and these delays cause tension infrastructure is also due to contact between the community and ACKUbetween the CDC and BRAC. For example warlords and other elites in provincial government has increased due to the increment for the intake project in the community wanting physical the NSP. Never before has the government Sholana was delayed by six months, during projects, even though in many been so visible in communities with which time the community was again circumstances the poorest physical reminders through projects, signs, flooded because the protection had only want poverty reduction. BRAC workshops and meetings that strengthen been partially constructed.4 maintain that this overemphasis the link between communities and provin- of infrastructure is a national cial/national government. 4.2.2 Training phenomenon. BRAC have organized training for NSP ori- The working relations with both the entation (which clarifies the NSP, the role of 4 Further information regarding regional and provincial OCs are good. BRAC the FPs, community representatives, etc), the difficulties that FPs in general sees itself as part of a team of which the OCs book-keeping, accountancy, procurement face can be found in Jones are vital; there are many meetings where and project proposal writing. BRAC uses (2005) Preparation Report decisions are arrived at jointly and BRAC do master trainers who receive their training section 4.3 p10. not feel overly pressured by the OCs in from the resource centre in Kabul. The terms of the actual day-to-day decisions. master trainers then train social organizers However, BRAC concede that Nangarhar is who in turn train the CDCs. This CDC THE PROVINCIAL not comparing favourably to other training also includes operation and mainte- FIELD SURVEY REPORTS

272 nance. Training on the whole is successful, 4.2.3 Community participation but BRAC complain that often people There remain significant cultural barriers to ignore the training and do what they want. women’s participation in Nangarhar. In the For example, BRAC will inform the people first year of NSP implementation 14 per cent of the main characteristics that make a good of women were attending CDCs; in year two CDC representative (honesty, functional its nearly 100 per cent. However, not all literacy, etc), yet the community still choose women vote and in the instances where an illiterate warlord or former commander they are able to, will almost always vote as CDC representative. under the influence of their male relative.

In terms of the skills required by BRAC From BRAC’s experience in the first year in employees working on the NSP, knowledge some districts (e.g. Achin) men were about NSP, communication skills, a positive refusing to let their wives/female relatives attitude and a good technical grasp are all be considered on the survey sheet for the essential. Although BRAC acknowledge NSP preparation, but this is slowly changing their weaknesses, especially the inadequate as the NSP gains more acceptance. However number of engineers, their difficulty under- there is no occurrence of men and women standing the technical manual and the sitting together to formulate the CDP. In the confusing technical guidelines for engineers future however there will be male/female (form 7), they nonetheless feel they have sub groups of a CDC, with an executive the capacity to run the NSP but would made up of two men and two women. On appreciate greater technical training input the whole it is difficult to generalize and a for specific NSP projects. community-by-community analysis needs to be undertaken. Despite the NSP objectives BRAC originally received NSP training from for female participation, change will only be UN-HABITAT and the OC training depart- gradual. ment. The training mainly concerned the five steps to NSP, engineering and irrigation The participation of other groups is less principles, interpretation of the technical problematic. Most of the projects have a manual and other NSP guidelines such as component for a percentage of vulnerable procurement and proposal writing. All this people who must benefit (this was 10 per training has proved very useful for BRAC to cent; now it is left up to the community to facilitate the NSP. However, much of the decide). There was evidence through the training does not benefit all the people who research to show how, for example, widows, require training. The OC only allow two orphans and the disabled were specific ben- people from the FP it be trained, yet BRAC eficiaries of some initiatives, e.g. sheep is operating in 5 provinces across the rearing in Sholana. A common observation country, and does not have the time to train from both BRAC and this research was that others whilst simultaneously rolling out the more people see the benefit of the CDC projects. In addition a BRAC engineer and what it can bring, the more both men stated: ‘The main training problem for us is and women want to join. that the procurement policy is designed in Washington and bears no reality to condi- 4.2.4 The interpretation tions hereACKU in Nangarhar. Even BRAC, with all of eligibility criteria our expertise and resources, find it Whilst it is easy to apply the eligibility extremely difficult to get CDCs to under- criteria to the intrinsic project, it is not easy stand the procurement policy and account- to present this criteria to the community. ing guidelines!’ Regardless of where the Almost without exception the first project procurement guidelines originate it remains people want is a mosque. As a BRAC a complex procedure with which BRAC community mobilizer related, ‘We tell the struggle. In addition, training the CDCs to communities to work together and identify complete sub project proposal forms is also priorities, to listen to each other and they very difficult. As one member of BRAC tell us they want a mosque, even though we stated, ‘The CDCs are constantly asking for have said from the start that we cannot give our help with the subproject completion them a mosque, and they ask us where is form, we show them, yet still they ask the ‘democracy’ in our thinking, denying because their capacity is so low. What will them something they all agree upon to be a happen when we (BRAC) leaves? They will priority. We are then accused of trying to not be able to cope.’ impose Christianity!’ ANNEX A9: NANGARHAR PROVINCE Some CDCs want large scale infrastructure

273 such as dams which, due to cost and scale, As part of the NSP mobilization process fall outside the remit of the NSP ($60,000). BRAC take people from areas where there is Many people ask for carpet-weaving no NSP to show them what the NSP has projects, but these have been proved to be done for particular communities, to practi- very difficult to bring about a positive cally demonstrate the success of projects. As change because whilst the intrinsic carpet- such, community representatives frequently weaving is straightforward, the marketing appear at BRAC’s national and regional and distribution of the carpets is far from offices asking for the NSP. easy. In summary the eligibility criteria is most relevant to the micro hydro and diesel There is a problem of understanding in generation projects, as are cross sectoral many of the communities. For example, projects such as health initiatives which people want light but many have no appre- need to be sanctioned by the Ministry of ciation of how the light appears, and how Health and not the NSP. the generation of light needs to be maintained/sustained, and for the poorest power 4.2.5 NSP termination is not a priority. In the experience of BRAC From BRAC’s perspective there are serious the poorest communities are more likely to doubts if the CDCs will be able to function ask for an economic activity rather than an without further capacity-building and direct infrastructure facility, but the same commu- external support. This is supported by nities often feel deluded when tangible findings from the OC and the CDCs. From results do not happen overnight. an organizational viewpoint BRAC staff can easily be absorbed within the organization The project will only get the go ahead if it is when NSP ends. a) technically acceptable; b) within the defined budget; and c) if there is adequate 4.2.6 Project relevance attention given to the future maintenance. BRAC facilitate a range of projects including It is often necessary for BRAC, and irrigation, water intake, diesel generator, sometimes the Provincial Ocs, to assess for protective walls, roads, boring wells, mine risks, undue political pressure, and culverts, sheep rearing, school construc- environment factors other than the ones tion, community centre construction and identified during the feasibility study. For self help. All projects are planned in line example in 2005 a CDC wanted to initiate a with the latest manual. project to generate income through the construction of kilns used for firing bricks. The projects have a direct relevance to the After an environmental assessment the community needs, although BRAC acknowl- project was turned down because of the edge that some projects, such as water negative environmental impact associated intake, are more universally beneficial than with increased incidences of land slides, and others. The most relevant projects demon- the exacerbation of the erosion of the soil strate clear linkages between the newly due to the need for wood to fire the kilns. In created CDC and its capacity for community addition relatively intense fires in the arid development, and the intrinsic project with conditions of Nangarhar are not appropri- other forms of community development. ACKUate. The projects are identified through a PRA- Although as yet there is no country devel- type process with focus groups identifying opment document like a PRSP, the projects problems, ranking priorities for sub project are broadly integrated with national devel- proposal. As BRAC acknowledge and the opment plans of reducing poverty and household surveys indicate, in some improving infrastructure. However, certain instances traditional elites such as warlords ministries are not appreciative of the NSP, still dominate proceedings. In such cases openly questioning the rationale and BRAC get people to write or draw their pri- approach (especially the Ministry of orities on paper so they will not be directly Agriculture). influenced by the elites. Often though, people are too cowed to respond inde- 4.2.7 Project sustainability pendently. Conflicts of interest can also There are several measures in place to occur when a decision on a community ensure that the facility/service can be main- priority is evenly split, i.e. where there is a tained. The cost of the maintenance as well substantial minority who have not got what as the depreciation of the asset is included they want. within the project cost. The community THE PROVINCIAL (per household that benefits) pay a fee FIELD SURVEY REPORTS

274 either in cash, or usually in kind once a appropriate and sound. A BRAC engineer, month an allowance, to enable appointed working on occasions with OC/MRRD repre- technicians to maintain the facility, provide sentatives, will carry out the feasibility study for fuel for the project if necessary and to to survey the design, implementation and cover depreciation costs. These costs maintenance of the project in accordance typically account for 20 per cent of the with the technical manual. BRAC acknowl- overall investment. edge that this process requires qualified engineers who are in short supply. Local In theory local technicians and not profes- capacities are assessed, but due to the sional personnel will maintain the facility, shortage of engineers not all people are up and the money saved up by the monthly to the task; hence the role of BRAC as the payments will ensure that when the facility overseer working through a technical is beyond repair a new facility can be checklist takes on an increased importance. purchased. BRAC however, is not very opti- Once the project has received sanction, pur- mistic that this system will work, fearing that chasing of materials takes place in three key even if funds are collected the cash will be ways: direct (>Afs 500), quotation (>Afs spent elsewhere and the facility will fall into 5000–250,000) and bidding (>Afs 250,000). disrepair. BRAC comment that it is too early to say if the facilities now in place will be Mitigation measures for earthquakes and functioning in ten years’ time. floods are incorporated in both the architectural and engineering aspects of the Sustainability is also an important factor for design. For example, on a 300m protective the economic activities. However, these are wall in Sholana expansion joints are placed much more difficult to measure and even every 15m to allow for seismic movement, BRAC is unsure how, for example, microfi- and buildings tend to be low and wide. nance initiatives implemented through the Problems during construction include strict CDCs can help to reduce poverty. supervision for mixing/timing of the cement. As one BRAC engineer complained, 4.2.8 Project efficiency ‘Engineers in Afghanistan do not allow for From the viewpoint of BRAC there are curing because of the lack of water; this several key factors which impact upon causes problems such as weak cement, project efficiency. Once a sub project flaking and cracking etc.’ proposal is submitted the OC check the proposal in order to make a decision on BRAC feel that to increase the project effi- whether the project should be sanctioned. ciency the training needs to be more comprehensive and include more NSP-specific The period of time between identification of projects. Currently there is flexibility for the project and the start of implementation BRAC engineers with autocad experience to is typically around three months. However, design projects that are not covered in the the average time from implementation to technical manual but have nonetheless completion is meant to be two–three been chosen by communities and received months but it usually takes six months. sanction from the OC. There are many delays: delivery of materials, securityACKU problems, weather-related and The usual considerations of quality, costs poor CDC/FP management. However, the and time are of course relevant to the effi- prime reason for delay is due to the ciency of the project. The delays in dis- excessive length of time it takes for the bursement causes costs to increase. For Block Grant to be processed by the OCs, example in one site at Dago, Chaparhar an and the protracted process of dispersal of original estimate for the price of a bag of funds through the DAB. cement doubled during the period of time from project submission to first disburse- BRAC maintain that over the last six months ment. Fortunately there is provision for these delays have worsened but this is due such occurrences within the incremental to the worsening security situation in the process that enables increased amounts for Eastern region and the uncertainty sur- the second and third instalments. However rounding the election process. the provincial NSP Manager of BRAC summed up, ‘The real problem is that the In terms of project efficiency within the BRAC is involved with 348 projects and the actual design and construction of the OC/MRRD at the provincial level only have ANNEX A9: facility, BRAC always undertake a feasibility two engineers to visit all the projects and NANGARHAR PROVINCE study to clarify if the proposed project is give feedback’. The OC/MRRD at the provin-

275 cial level simply do not have the capacity to 7. All communities visited had a sound check the number of projects. appreciation of the theoretical need for maintenance for which BRAC must take On larger projects there is some effort made the credit. Through the use of asher, for safety of workers, but there are few con- collections of cash/produce are made cessions, no helmets, basic site safety etc. to pay someone to oversee the maintenance of the facility and even General Comments to cover the costs of depreciation. 1. BRAC has a sound knowledge of the However, once BRAC have left the NSP, its overall objective and its process community the organization doubts of implementation. BRAC accordingly that such funds will be used for their are well aware of its limitations within intended purpose due to the weak the constraints imposed and its capacity and inadequate understanding operating environment. of the CDCs. 2. In Nangarhar BRAC is operating in an increasingly insecure environment; attacks on staff and offices are increasing and BRAC is having to take ever more 5. The communities with a CDC elaborate security measures. The organization feels especially vulnerable Key Aim: To assess the legitimacy of the to external events, particularly those CDC and its capacity to plan and manage concerning the USA and ISAF. development projects that benefited the 3. From the beginning BRAC emphasized community. the government’s role in the NSP. All the evidence from this research confirms There were 3 core site visits necessary for an that the communities are in no doubt effective evaluation: a community where the as to the origins of the programme NSP is nearly completed (Sholana, implementer. Chaparhar District); a community where the 4. BRAC trains its staff for different NSP has just started (Balla Dehe, Surkhrood aspects of the NSP, only to find that District); and a community where there is many trained staff leave for better paid no NSP (Bahsawal, Mohmamdara District). positions with other international NGOs. This section concentrates on the former As with all organizations in Afghanistan two communities, with additional input BRAC struggles to find enough skilled from other CDCs from secondary research staff, especially engineers to supervise bases visited in: Kooz Naza Abad, Sorkhrod; the projects and operationalize the Ahmadzi, Sorkhrod; Dago, Chaparhar; technical manual which is deemed to be Mano, Chaparhar (including the CDCs of unnecessarily complex. BRAC operate in Nazier Kalay and Gradal Kalay); Asadkhil, five provinces throughout the country, Achin; Khankai Satkai, Achin; Merzaian, yet only two of its staff receive NSP Sorkhrod and Ditawai Amerkhil, Sorkhrod. training. Household surveys were also conducted in 5. The delays in disbursement put BRAC Sholana, Balla Dehe and Bahsawal, the in a difficult position; they are often findings of which have been integrated into blamed by the community, projects ACKUthe analysis. are delayed and as a result community momentum is lost. In addition costs often increase due to the prolonged wait for sanction. 6. In the experience of BRAC the poorest of the poor do not always benefit from the NSP. When identifying community priorities the poorest tend to want income-earning opportunities on the basis that they have no land and have lived without irrigation, flood protection, a road, electricity etc for so long that it would not make much difference to their lives. However they are overruled by the majority, themselves led by the influential, landed, THE PROVINCIAL literate, elites. FIELD SURVEY REPORTS

276 Number Name of CDC Date of CDC Projects Status Establishment

1 Sholana, November 2003Intake/irrigation/ Nearly completed Chaparhar District Protective wall Sheep rearing

2Balla Dehe, May 2005 Road/culvert Ongoing Sorkhrod District (started August 2005)

3Kooz Naza Abad, September 2005 Now prioritizing Ongoing Sorkhrod District projects

4 Ahmadzi, November 2003Boring wellsCompleted Sorkhrod District

5 Dago, School constructionOngoing Chaparhar District

6 Mano, Diesel generator Generator (complete) Chaparhar District Road/culvert Road/culvert (ongoing)

7 Merzaian, May 2005 Road/culvert Awaiting approval Sorkhrod District

8Ditakiai Amerkhil, March 2005 Boring well First well in the Sorkhrod District Diesel generator process of being dug

9 Khankai Satkai, May 2003 Micro hydro power Nearly completed Achin District

10 Asadkhil District December 2003 Pipe scheme, Completed sheep rearing (no completion certificate)

The Provincial Governor’s office ranks the vast majority of the population of Sholana provinces in Nangarhar in terms of develop- are poor to middle income, the majority ment on a scale of 1–3, with 3 being the moving between the two states as fortune least developed. Accordingly Sorkhrod is (and poppies) allow. Most men are farmers ranked ACKUas 1, Achin 2 and Chaparhar as 3.5 or labourers. Each family (average size 15 persons: see household survey) has typically a high number of dependents: 5.1 Project information for children, elderly members, disabled and primary research bases widows/orphans. All people in Chaparhar are Pashtun. Sholana, Chaparhar District The village of Sholana in the foothills of the Brief Description Tora Bora is 45 km away from Jalalabad; the Project Name: access road is in a poor condition with only Construction of Protective Wall, 5 Development rankings 10 km of tarmac. Chaparhar district is con- Intake and Irrigation System in Nangarhar Province, sidered to be a difficult place to operate due Length of intake: 250 m August 9th 2005, Provincial to the high levels of insecurity and inade- (+80 m extra) Governor Office, Jalalabad. quate roads. Sholana is a poor district, too = 330 m far from Jalalabad and not high enough up Top width: 0.6 m the Tora Bora Mountains to benefit from a Bottom width: 3.5 m ANNEX A9: better climate. According to the MRRD and Height: 6.5 m NANGARHAR PROVINCE BRAC, and confirmed by the research, the (including foundation)

277 Benefited communities: The only project for which construction has Sholana, Khanan, Miagan and Gulshir started is for the road and culvert system. Benefited families: 523 Culvert construction is already underway in Land irrigated: 10,000 grebs preparation for the road construction. Total cost: Afs 5626273 Already the newly constructed culverts are US $112,525 having a positive effect on the existing irri- NSP Contribution: Afs 2063646 gation systems. US $41,273 CDC contribution: Afs 562627 US $11,252 5.2 Information for Project status: secondary research bases Nearly completed (on third instalment) Four additional research bases were visited. The results from these bases complement The main project is an intake channel which the findings from the primary research brings water from the river to the land sur- bases of Sholana and Balle Dehe. rounding the community; the intake also acts as a protective wall. The intake and Kooz Naza Abed, Sorkhrod District accompanying irrigation scheme are nearly The village of Kooz Naza Abed is 15 Km finished: all that is remaining is to complete away from Jalalabad with reasonable road 30 m of pointing on the sides of the canal access. Many men work in Jalalabad as and cover the foundations of the wall. The traders, drivers, masons or labourers; it is other NSP project, now completed, is for considered to be a middle income area. In sheep rearing where vulnerable groups – relative terms Kooz is one of the safer places widows, orphans and the disabled – are in which to work. The average household given two sheep. size is 10, with each household comprising many dependents. All people are Pashtun. Balla Dehe, Sorkhrod District The NSP only commenced in August 2005 The village of Balla Dehe is 25 km from and the community has just finalized its Jalalabad to the northwest along a road only CDC. partially tarmaced for the first 10 km from the city. Like Chaparhar, Sorkhrod District is Ahmadzi, Sorkhrod District considered to be a dangerous district to The village of Ahmadzi is 25 Km away from conduct the NSP. Balla Dehe lies in an arid Jalalabad with reasonable road access. Most valley in the autumn/winter whilst in the of the men work as farmers and labourers in spring/summer the snow melt from the the valley behind the settlement. It is con- mountain ranges is channelled through sidered to be a poor area. The average several wide rivers nearby. The vast majority household size is 10, with each household of people in Balla Dehe are considered to comprising many dependents. All people be poor; despite their relatively close are Pashtun. To date in Ahmadzi seven proximity to Jalalabad, few travel to the city boring wells have been constructed. to work. Most men are farmers or labourers. The average household size is 11 persons Mano, Chaparhar District with many dependents – children, the The village of Dago is 50 Km away from elderly, widows, orphans and the disabled. ACKUJalalabad along a poorly maintained track. All people in Sorkhrod are Pashtun. Mano is considered to be a highly dangerous area and in recent times there Brief Description have been frequent attacks against the ‘gov- Project name: ernment’ (security forces, outsiders, etc). Construction of Road and Culvert Many of the men are unemployed and those Length of road: 798 m who work are labourers, farmers or Width of road: 4 m tradesman. Mano is considered to be a poor No. of culverts: 13 area. The average household size is 12, with Benefited families: 269 each household comprising many depend- Total cost: Afs 1103004 ents. All people are Pashtun. To date in US $22,060 Mano a school is half way through comple- NSP contribution: Afs 1002731 tion and there are ideas for other projects US $20,054 such as culvert/ irrigation system to follow. Community contribution: Afs 100272 Dago, Chaparhar District US $2,005 The village of Dago is 48 Km away from THE PROVINCIAL Project status: ongoing Jalalabad along a poorly maintained track. FIELD SURVEY REPORTS

278 Like its neighbour Mano, Dago is consid- track is barely passable and access is espe- ered to be especially dangerous. Most of the cially difficult as the poor security situation men are unemployed or work as labourers, dictates that 4x4 vehicles should not be farmers or tradesman. Dago is considered used. Most men are employed as poppy cul- to be a poor area. The average household tivators, wood collectors or, most lucra- size is 11, with each household comprising tively, owners of mules who take the opium many dependents. All people are Pashtun. down the mountain tracks to the market. The diesel generator project has been Outside poppy related activities there is completed and 760 families now receive little other employment. The average electricity for 5 hours a day. The household size is 12, with each household road/culvert project will commence soon. comprising many dependents. The vast majority of the population and nearly all Merzaian, Sorkhrod District CDC members are illiterate. All people are The village of Merzaian is 18 Km away from Pashtun but their first loyalty is to their Jalalabad accessed along a poorly main- specific tribe. The CDC was formed in May tained track. Most of the men are employed 2003 and a micro hydro project has just as labourers in the area or in Jalalabad. The been completed. village suffered very badly during the Russian occupation and much of it lies in Asadkhil, Achin District ruins. The average household size is 10, The village of Asadkhil is 70 Km away from with each household comprising many Jalalabad in an extremely remote part of dependents. All people are Pastun. The Achin District, high in the White Mountains, CDC was only formed in May 2005, but 4 hours’ walk from Pakistan. It has exactly already a proposal for a 2.5 km road has the same characteristics as Khankai Satkai. been submitted. The CDC was formed in December 2003 and a pipe scheme and sheep rearing Ditawai Amerkhil, Sorkhord District project has already been completed. Ditawai Amerkhil is 15 Km away from Jalalabad and lies directly off the main Jalalabad–Kabul road. Most men are 5.3 Findings from the employed as farmers or labourers, many communities with CDCs working in Jalalabad. The average The findings of the two CDCs in Sholana household size is 10, with each household and Balla Dehe, with additional input from comprising many dependents. All people the other secondary CDCs visited, are are Pashtun. The CDC was formed in March broken down into several key areas: legiti- 2005 and has just received its first grant to macy and acceptance of the CDC, function- begin construction of seven boring wells. ing of the CDC in relation to the community, project implementation, maintenance, pro- Achin District (special note) ject monitoring, the relationship between Achin is a district where poppies are exten- the CDC and the government, the relation- sively cultivated, and the road to Khankai ship between the CDC and the FP, further Satkai passes through several open heroin initiatives as a result of NSP, and perceptions markets and there are many laboratories for of national solidarity. refiningACKU the opium. Unsurprisingly there is no formal government control in this tribal 5.3.1 Legitimacy and acceptance of the CDC region and drug mafias and al-Qaida From the research there are two types of dominate.6 There is an occasional American community governance systems. In Sholana bombardment of laboratories and spraying each area has a CDC with elected members, of poppies which does not ingratiate the who in turn elect representatives for the local population to the government or the main CDC. Not only does the CDC concen- international community. The poor security, trate on the project and other community geography and the poor state of the roads development initiatives, the CDC also 6 The situation in Achin is mean that Achin is considered the hardest resolves community disputes over land, and practically identical to the tribal district to implement NSP in the whole of petty crime, etc. Before, the NSP conflicts belt of Pakistan, in particular the Eastern Region. were solved through elders but according to Achin’s neighbouring North some ‘there was a problem with the elders; Western Frontier Province. Khankai Satkai, Achin District many took bribes, they were not account- The village of Khankai Satkai is 85 Km away able to anyone but themselves’. Feedback from Jalalabad in an extremely remote part from Dago suggested that as a result of the ANNEX A9: of Achin District high in the White CDC ‘there is a great improvement in the NANGARHAR PROVINCE Mountains, 3 hours’ walk from Pakistan. The way the community is governed; before any

279 community development only assisted the General comments powerful or connected but now all benefit, 1. In the communities where the NSP we are all equal now.’ is fully established the CDC has taken over as the primary community In Balla Dehe the situation is slightly decision-making unit and is widely different: as the NSP is a new concept the accepted as a positive agent for change. CDCs and the traditional shura work in In the communities where the NSP is in parallel, the CDC concentrating on the the process of implementation the CDC project and community development whilst is seen as a project implementation unit the traditional Malik shura dispenses justice whilst the traditional malik shura and advice. However, this parallel gover- concentrates on all other issues. nance is not to everyone’s liking. A Malik 2. In some cases traditional leaders have leader from a traditional shura was scathing been marginalized. This is especially the in his views of the CDC, complaining that case when senior CDC members have ‘the community is no longer united behind been chosen because they are good the old shura, my power is being eroded communicators and literate (as opposed and my honour as one of the community to someone with authority that comes leader diminishes’. Evidence from all CDC with age). This has caused some sites showed that in many cases the tradi- resentment, but in the research bases tional Malik leaders and some elders had visited even the ‘marginalized’ admit been absorbed within the new CDC that the project seems to justify the structure. process. 3. Elites tend to dominate the main CDCs, With the exception of some traditional maliks and immans and former warlords leaders who appear to be marginalized, the remain influential. remaining feedback was overwhelmingly 4. All established CDCs could explain positive regarding the acceptance of CDCs. the NSP process with reasonable Even some with initial reservations now confidence; the accompanying view the CDC positively. The CDC Chairman documentation appeared to be in for Merzaian explained, ‘I was doubtful at order, although the extent to which the first about how CDCs will work and I ques- communities could undertake such an tioned if the government was really exercise in the future without BRAC is committed, but then I went to the jirga in highly questionable. Kabul and was very impressed by the 5. There is an opportunity cost to Ministers and President who showed they participation in the CDCs. Whilst at the fully support what we are doing.’ moment voluntarism is accepted, many CDC members wanted some form of Even in areas where the CDCs are newly future financial incentive. established there is widespread acceptance 6. The recent jirga in Kabul was cited by of these new forms of community govern- many CDC members to be a defining ment. For the majority the CDCs have factor that influenced their perception changed the way the community is of the NSP. As a result of hearing governed for the better. This positive ministers and even the President talking support is not altogether surprising given ACKUabout the NSP people became more the existence of the extremely weak district enthusiastic. administration that tends only to concentrate on security. 5.3.2 Functioning of the CDC in relation to the community It is hard to generalize about the leadership All the CDCs visited (including the newly within the CDCs: in Sholana, Kooz Naza established CDC) were able to explain how Abed and Balla Dehe the CDC chairmen the CDC functions as clarified in the were older males, whilst in Mano and Dago Operational Manual. both CDC chairmen were younger men who in both instances were given the In every CDC meeting room there are the position because they were good communi- posters explaining the process of the NSP; cators and educated. these no doubt acted as prompts in some cases. But it was clear from the general In terms of being aware of the NSP, all com- comments from both male and female CDC munities highlight how BRAC entered the members that the process described in the community and began NSP orientation. Operational Manual was generally well THE PROVINCIAL Until BRAC appeared no one had heard of known. Throughout the course of the FIELD SURVEY REPORTS the NSP.

280 research there were some specific functions p.49–54; all documentation appeared to be of the CDC that act as examples of an under- in order. standing of the process of NSP: 5.3.3 Gender considerations Clusters As warned by the national and regional OCs ‘We divided into clusters to elect members as well as BRAC, the participation of women for the main CDC.’ (Sholana) in the NSP in Nangarhar is highly problematic. Evidence from the research, especially Priorities in Sholana, Mano, Dago (Chaparhar) and ‘At our first meeting with the clusters we Khankai Satkai and Asadkhil (Achin), clarified the main problems here and identi- supports these warnings. fied the most important. It was decided that the intake and channel was the most The district of Chaparhar is the most con- important priority for the community. For as servative place in Nangarhar, itself one of long as we can remember we have wanted the most conservative places in Afghanistan to harness the river in flood to irrigate our along with Kandahar and Patikya. BRAC land, but until now we were not able to do community mobilizers faced a myriad of so, because of war and insufficient funds. problems concerning the involvement of However the poorest did not think that the women. In the first instance men would not intake was a priority because they do not allow the women to be on the household have any land from which better irrigation list in areas where the NSP was going to would be a benefit. So we decided that the commence; the men would not allow the poor would be the labourers for the project women to participate and BRAC were (intake, wall and channel) for which they accused of compiling a list of women to pass would be paid. In addition we also gave on to the CIA for them to interrogate. then Afs 10,000. Previously the poor could not complain but they are listened to and However, there has been some relative we hired them for labour, this was agreed progress. In most areas women have been with BRAC who then sent an engineer to able to form a female-only CDC. Most of the design the project.’ (Sholana) female-only CDCs comprise of younger women. The women then give authority to Elected representatives their sons, brothers, husbands, uncles, ‘All members are elected; as this is a grandfathers, cousins etc to use their vote voluntary process not everyone is active all to vote on their behalf for the election of the the time, but we try to ensure that all people all-male main CDC. Feedback from all the (all men) participate as much as possible. female-only CDCs interviews suggested that Women may NOT vote, one of the clusters the women were happy with this arrange- comprises females only, but this cluster did ment. As one Mano female CDC member not have a role in the election of the main said, ‘We are happy to give our men the Sholana CDC.’ (Sholana) vote, they know what is best for us, it is natural for us to look to their judgement’. As Documented activities such the female CDCs have virtually no ‘In all the CDCs visited the Chairman practical role in the implementation or presentedACKU the various ledgers, procurement planning of the priorities, community devel- book (stationery, building material, labour opment plan and project. As one female etc), bank account information, labour from Dago explained, ‘The men come back register, minutes of meetings, register for to us and explain the priorities to us and community contribution (in kind/cash). how we as women will benefit from the Although in Pashtun these were clarified by project so they keep us informed.’ In Mano national researchers. In addition at most women were happy with the proposed con- sites where the project was being construction of a road, as in the past some structed there were noticeboards to show pregnant women died on the way to the all the community the objective of the hospital on the back of a mule because the project, costs, community contribution in road was so bad; soon women will be able to kind/cash, time, and grant instalment.’ go by car. (Balle Dehe) The female CDCs however do want specific In the regional OC offices the evaluation projects for women: short courses on team was able to select various random literacy (if you are over 21 or married you ANNEX A9: projects and check the documentation, as cannot go to school), tailoring, farming, NANGARHAR PROVINCE described in Manual p.18-25 II A B V ABC pottery, and health courses. As one female

281 from Sholana commented, ‘We are not suggests that their male relatives inform allowed by our husbands to be vaccinated them as the decision is being made. This because the vaccinator is a man. Even if it is was also universally accepted by the allowed the vaccination must be through females in the sites visited. the clothes to the arm and not on bare skin. 4. Females do have their own sets of Therefore we need female vaccinators as priorities for gender-specific initiatives – well as training for traditional birth atten- health training, micro enterprise and dants.’ In Nangarhar BRAC has introduced literacy. some animal husbandry projects specifically 5. The NSP gives one key benefit to for women. women. Until the female-only CDCs were established women were not Despite these shortcomings there is one allowed to mix outside of their clearly discernable benefit for women that household. Now, through the CDC, the NSP provides. As the female CDC group women can meet to discuss NSP from Mano explained: ‘Before the NSP we matters. The female-only CDCs have were not allowed out of our houses to talk become a forum for discussion on with the other women, we had to stay in other relevant issues (health, domestic and look after the children and men, we violence, literacy, etc) that women could were only allowed out for funerals and not discuss before for want of a reason, weddings. But now we can go to the CDC this is a direct result of NSP. meeting and we can discuss many issues 6. The situation in Achin is even more and chat with our friends, about other extreme; women are not even part of things of concern to us…’ As one BRAC the NSP process. For the men of Achin member commented, ‘This is a social revo- this is simply unacceptable. lution in Nangarhar!’ 5.3.4 Project implementation Has the NSP in Nangarhar led to an increase All CDCs visited reported that BRAC had in the empowerment of women? Not neces- been able to facilitate what the community sarily in terms of contribution to community had wanted once it was established that planning for community development, but certain priorities, such as mosques and certainly in terms of being sensitized to clinics, were not viable. other issues. Now there is a forum for the women to meet which is being used tenta- Once the project was endorsed the tively to discuss issues such as domestic community received cash from the govern- violence and female health. This would have ment to purchase materials, pay for labour been impossible without the NSP. and in some cases, i.e. Sholana and Balla Dehe, hire one local engineer7 who The situation in Achin is different from oversaw the construction of the project Chaparhar; in both the CDCs visited women (BRAC also oversaw the local engineer). In were not included in any part of the NSP both cases the community also contributed process. Although in both CDCs the men cash, labour or payment in kind. However, claimed that women benefit from the evidence from Balle Dehe and other CDCs respective projects. suggest that there was excessive optimism ACKUwhen the CDC was formulating the amount General comments of community contribution. 1. Nangarhar is a highly conservative area. The inclusion of women in the NSP in The only problem experienced was due to this area has to be viewed in relative the delay in disbursements. In Sholana the terms. CDC had received money within three 2. Without exception all members of the months of submission but there was a delay senior CDCs are male. Women have in instalments of four months. This meant formed their own CDCs (as specified by that the work stopped and a sudden flood the manual). However, the women give also affected the structure which was not their votes to their male relatives who yet finished. 7 It later transpired that the vote for the all-male members of the local engineer hired in Sholana senior CDC on their behalf. This process An example of problem-solving enabled by was in fact a close relative was universally accepted by the females the NSP comes from Sholana: during the of the chairman. in the sites visited. project implementation one of the CDCs 3. Females do not have a direct say in the complained that the poor were not benefit- process of prioritization and project ing to the extent they should, so it was THE PROVINCIAL selection. Feedback from the women decided that more workers from especially FIELD SURVEY REPORTS

282 poor backgrounds would be hired for the community as they now have experience in earth moving and labouring. project management.

All the CDCs and household surveys suggest None of the CDCs visited were aware of the that the NSP has provided many benefits. In complaints procedure, when problems Sholana for example the NSP was associated occur BRAC is the first point of contact; if a with three main benefits: 1) the intrinsic problem is serious the MRRD in Jalalabad is project: the protective wall against the flood informed. and prevention of erosion of bank and the irrigation of land that was hitherto consid- General comments ered to be unusable because of poor/non- 1. In all bases researched the CDCs existent irrigation. This has also meant that were happy with BRAC’s performance, cotton and sugar cane can be grown as cash helping to deliver on the priorities crops. 2) As a result of the process of identi- the CDCs identified. fying and constructing the project the CDCs 2. All CDCs provided contributions maintained that they have learnt new skills towards the project, either in cash or that can be used to ask donors for addi- in kind. However, in all cases there was tional help, and the community is now more excessive optimism regarding what the united as a result because the benefits of community could contribute, and in working together can be seen. 3) Other ini- some cases individuals have reneged tiatives have been implemented such as the on their promises and this has caused water wheel to crush wheat which would some division. not have been possible without the NSP. 3. The delays in disbursement are considered by the CDCs to be the As one Sholana resident confirmed, ‘There major problem experienced. When is a huge benefit [from the NSP]: before the the projects are delayed, costs rise since intake I could only harvest 50 kg of wheat; the original estimates were undertaken, now, because of the intake, in the same plot and momentum is lost. of land I can harvest 400 kg of wheat. We can now also grow maize because the irrigation 5.3.5 Project monitoring is good and we can sell much more and Both communities claim that they have a increase our income.’ A widow and orphans monitoring system in place. Evidence from in Sholana were enthusiastic in their the documentation at CDC and verified at support for the sheep rearing project for OC level shows how the progress of the which they have received two sheep each projects has been measured in terms of for milk, wool and lambs, although they labour given, materials purchased, funds were under the impression that the dispersed and projected targets met Chairman of the CDC had given them the (depending of course upon timely disburse- sheep and had not heard about the NSP. In ments). However, from discussions with the long term the CDCs in Sholana hope BRAC and more in depth discussions with that they can cultivate more land and grow the OC’s monitoring officer, as well as more plants, especially fruit, as a result of questions to the various CDC members the NSP. (chairperson, procurement officer etc), it is ACKUapparent that BRAC through its regular In Balla Dehe the NSP also has many meetings with the CDC plays the defining practical benefits from the road/culvert role in the monitoring of the project, not project and the process of community just through its own engineers but also mobilization. As one Balla Dehe CDC through influencing the CDCs in terms of member explained, ‘All the community gets what to write down. benefits from the road: vehicles can visit the community, people who are sick can get to Another monitoring method is also the clinic easier and faster, those who own apparent. At the main construction site land are happy because the price of their there is a whiteboard detailing funds land that is by the road has increased, goods disbursed, instalments given, community will be cheaper in the shops, farmers will be contribution in cash and in kind and time able to take their goods to Jalalabad, and plan for completion. This provides a visible more resources can enter the village. We sign, for the literate in the community, of expect more projects in the future because progress and acts as a form of community we have opened up access.’ In addition the monitoring and transparency. ANNEX A9: CDC feels it is in a good position to NANGARHAR PROVINCE encourage other donors to help the

283 General comments district administration have little capacity. 1. In all the research bases visited there Even though both communities have CDCs was evidence of a monitoring procedure the district would still communicate as defined in the manual. However, through the traditional maliks and not the BRAC plays the defining supportive newly elected CDCs. In addition feedback role in the monitoring. from all the research bases suggested that 2. The community monitoring is the district administration concentrates complemented by whiteboards at the more on security issues than ‘development’. key construction site showing all literate community members an updated cost, The relationship between the CDC and the community contribution, instalment province is better; as one Balle Dehe number and targets. This reinforces resident explained, ‘We see the provincial ownership and transparency. leaders when they come to give us our certificates and open our projects. Until now 5.3.6 Maintenance and sustainability we have never see them before so we appre- All CDCs appeared to appreciate the impor- ciate that now they are taking an interest in tance of maintenance of the facility. Without us.’ However there was general agreement exception all explained that a form of to one of the comments from the Balle community tax, either in wheat or money, Dehe CDC, ‘Only the MRRD and NGOs will be levied to pay for someone who will work for the people of Afghanistan; other be responsible for the maintenance. ministries need to be taken over by NGOs so they too will work!’ As the Sholana CDC Chairman explained: ‘Now we have the experience with BRAC we In terms of improvements all feedback was have planned to maintain the intake in the universal in stating that the district adminis- future. We collect annually wheat for one tration needs more resources, or that the person who is responsible for the mainte- CDC should become the district administra- nance (asher); all people contribute to this. tion as soon as possible and work with the If there is a problem this person will sort it provincial government directly. out and he is paid by wheat.’ In Balla Dehe the same arrangement will be in place when General comments the road/culvert system is completed. 1. The district administration has practically no capacity to work with the General comments NSP. In addition the research from the 1. All CDCs appreciated the need for CDCs, the OC and FPs confirms that the maintenance and have planned a district administration focusses more on community levee, either in cash or in security than ‘development’. In some kind (asher), to pay for one person to cases the findings suggest that the oversee the maintenance of the facility. district administration communicates to However, BRAC and the OC have doubts the community through the traditional if this system can be maintained in the malik shuras and not through the long run. CDCs. This in some cases has led to 2. The sustainability of diesel generators disillusionment within the CDCs that appears to be particularly problematic ACKUtheir potential influence is already being as fuel costs have risen substantially undermined by a traditional system since the generators were installed. 2. The relationship with the provincial 3. In some instances communities have government is better, with fairly regular developed further initiatives as a result contact especially when certificates are of the NSP project (see Benefits of the presented and projects inaugurated. NSP 7.4.8). 3. The perception that the NSP is a 4. In some of the research bases, the government programme is reinforced project was complete but a ‘Project with NSP/MRRD signs at key Completion Certificate’ was not construction sites throughout 8 Following the CDC jirga in forthcoming. the community. August 2005, the process to 4. All the evidence from this research legalize the CDCs to, in essence, 5.3.7 Relationship between suggests that there has never been become the elected district the CDC and the government greater contact between those administration is underway. The relationship between the CDC and the communities with CDCs and district level government is poor; the the provincial government. district administration is really the CDC.8 In THE PROVINCIAL both Sholana and Balle Dehe it was clear the FIELD SURVEY REPORTS

284 5.3.8 Relationship between But this again does not mean that the the CDC and the FP CDCs are now equipped to face the There are many factors which influence the future without BRAC. relationship between the CDCs and BRAC, 4. BRAC are under pressure to complete possibly the most crucial is the training that projects. This inevitably means that BRAC provides for NSP orientation, there is some degree of fast-tracking problem identification and prioritization, the process of NSP through the project management, accounting, and pro- communities, which is detrimental to curement, etc. ensuring a more in-depth understanding amongst the CDC members. The training given was useful, as one Sholana CDC representative stated: ‘We had 5.3.9 Further initiatives as a result of NSP NSP orientation and training in finance, In terms of initiating further projects as a book-keeping, procurement, proposal result of the NSP the CDCs are optimistic. In preparation and project planning. All the Sholana the CDC identified the need to training was useful and some of us have clear traditional irrigation systems: this was learnt new skills which we might be able to funded by DAI. During the elections the use in the future. However, many of the CDC was asked to provide voluntary protec- forms are too complicated and we asked tion for the election site. In Ahmadzi the BRAC to help us (especially the procure- CDC received GTZ funding for a small ment form). The training we received helps bakery. us to show the community what we have received and spent and we can show the Although far less advanced in Balle Dehe community the balance, this makes us trans- the CDC feel that they are becoming parent’. Another Sholana CDC representa- equipped with the skills and knowledge to tive observed that, ‘We obviously have the approach other organizations. However, the knowledge and skills necessary because we best example of further non-NSP initiatives have completed the project!’ comes from Sholana where a water wheel has been added to the NSP intake channel BRAC also gives day-to-day support and to grind the wheat. This was set up through advice, e.g. in Sholana for the second the CDC’s own initiative and could only project, sheep rearing. BRAC gave the CDC have been made possible through the NSP. ideas as to the economic benefits of sheep rearing and medicine for the sheep. Non-project initiatives are also developing. However, as clarified above, due to the time In the more established CDCs like Sholana, pressure BRAC is under from the OC at Mano and Ahmadzi, tentative steps are provincial and national level, whilst the being taken for the CDC to become a wider training is given it would be inaccurate to community problem solving forum. This is say that the CDC has the full capacity to not altogether surprising as in most cope with the NSP or other similar develop- instances the Malik, and often the Imam, ment initiatives if left entirely to its own have key positions within the CDC. devices. 5.3.10 Perceptions of national solidarity 1. All NSPACKU communities visited deemed the Feedback from all the research bases gave a training provided by BRAC to be very broadly similar perspective of the NSP’s useful. contribution towards national solidarity 2. Many of the CDCs whose members are countrywide. Common responses to how literate find the forms (procurement, the communities’ experience of NSP leads accounting, and subproject completion to national solidarity were defined at forms) too complicated and are content community and national level: to rely on BRAC to ensure their completion. This inevitably means the Community level CDCs are not best equipped to face a ‘The NSP provides unity as the CDCs future without BRAC. In some cases do not just concentrate on the project; CDCs are just signing already we have interacted with each other completed forms. to create the project and so our 3. BRAC is operating in some areas (e.g. community is more united and stronger Achin District) where the vast majority as a result, and this helps the country of all CDC members are illiterate. In as we see the government is helping us; ANNEX A9: such circumstances there is little option this has not happened before.’ NANGARHAR PROVINCE but for BRAC to complete all the forms. (CDC representative, Mano)

285 ‘We coordinate our work between the Afghanistan; we are doing government other CDCs, we meet and share ideas; work, they are not paying us, the money this has created unity.’ the government saves can be used for (CDC representative, Sholana) other reconstruction purposes. As we ‘The main benefits are that people are are all working for the government coming together to solve community together we are united in a purpose problems and as a result we improve for reconstructing the whole country.’ our community with a project.’ (CDC representative, Dago) (CDC representative, Dago) ‘NSP weakens the power of warlords, ‘The CDCs will exist in the future decision-making is at the grass roots because we have the training and and because of employment and knowledge to identify priorities and better livelihoods, people will submit proposals for projects to other not want to fight.’ organizations other than BRAC.’ (CDC representative, Ditawai Amerkhil) (CDC representative, Sholana) ‘We are very optimistic about future ‘The CDCs will exist because they unity in Afghanistan. There has been are through election, and everybody many years of war but NSP gives us can vote (not women); as the CDC hope and we know that the world is is transparent it will continue.’ supporting Afghanistan. We are Tajik, (CDC representative, Mano) Pashtun, Uzbek, Communist, ‘We are optimistic for the future in mujudaheen and were divided, but this Ahmadzi because there has been programme helps us come together.’ elections at district level and country (CDC representative, Merzaian). level and eventually the CDCs will become the governing structure at General comments on the the district level and we will be paid.’ benefits of the NSP in the communities (CDC representative, Ahmadzi) The NSP is associated with several key ‘Unity increases when people work benefits: together to build the project and 1. The formation of the CDC, forming a participate in decisions that affect the CDP, selecting priorities and then jointly project. The management, monitoring implementing a project has given a huge and construction that the community boost of collective confidence and has to undertake can also increase esteem to the communities where unity as we are all working together. the NSP is being undertaken. Such Unity would also be created if larger communities are more optimistic about projects affecting several districts the future than those communities would be undertaken.’ where there is no NSP. (CDC representative, Sholana) 2. Without exception all communities knew that it was a government National level programme and understood the ‘The NSP is very useful at country level connection between community too as it contributes to the development empowerment, joint decision-making of Afghanistan and we get a project in and the improvement of rural our community.’ ACKUinfrastructure with improved livelihoods (CDC representative, Balle Dehe) and a greater feeling of local and ‘As all communities in Afghanistan have national unity. Quite simply the NSP (incorrect) this will help us be government is listening and responding unified.’ (CDC representative, Ahmadzi) to community needs – a very welcome ‘There are many communities with NSP, process unheard of until now. it shows us the government wants to 3. The NSP process has introduced help us and is listening to different new skills to the community, which communities all over Afghanistan, certainly need to be consolidated, but therefore it is helping to unify us.’ nonetheless contribute to community (CDC representative, Sholana) confidence, especially when it comes to ‘We know the government does not approaching other donors for assistance have the resources so it is asking for- and using the CDC as a problem solving eigners to help us, but we appreciate, forum. but our loyalty is always first to Allah and 4. The intrinsic projects in the sites visited our tribe.’ (CDC representative, Mano) were generally well designed and ‘As we are voluntary we are in fact constructed appropriately. In particular THE PROVINCIAL doing the government’s job all over those projects which bring multiple FIELD SURVEY REPORTS

286 benefits are especially noteworthy, exception that Bahsawal does not have the such as the culvert/road, protection NSP. The average household size is 15, with wall/intake, boring well projects, and each household having many dependents, tended to benefit the most number of especially children, widows, the elderly, the people regardless of economic status disabled and the sick. or participation in the CDC process. 5. The NSP facilitates other community-led initiatives that could not otherwise 6.1 Existing traditional forms of have been undertaken. Additional governance within the community infrastructure is often added to the There is no regular system of shuras; the NSP project which enhances the value Imam leads the people along with village of the NSP, demonstrates community elders, who solve problems together. The ownership and initiative, and to an community struggles to meet its needs; extent augurs well for the sustainability there are no ‘development’ initiatives, only of the project in the future. reactions to events such as flooding. In such 6. There is a clear link between the cases asher is used to meet immediate projects implemented and poverty needs. reduction at a community level. For example from the sites visited the NSP The community leaders maintain that the was associated with several discernible reason they are unable to get assistance is poverty reduction benefits which because of their geographic position included the communities’ ability to: between Pakistan and Afghanistan, making grow more produce, especially cash assistance difficult and dangerous. As one crops such as sugar and cotton, and sell senior leader said: ‘We have a lot of the surplus; adopt year-round cultivation problems but no one wants to listen to us. and generate more income which is We need clinics, intakes, flood protection spent within the community. The our houses and fields are often destroyed communities also benefit from cheaper because of flooding. The road is also bad goods because of improved transport; and there are no culverts in place. There are a reduction in transport costs; greater no employment opportunities for labourers levels of protection against natural to earn a wage.’ disasters; better levels of communication and higher levels of education. 6.2 Relationship between 7. There is a direct benefit on poppy the community leadership eradication objectives at the local and the government level, as through the NSP community The relationship with the district adminis- livelihoods are improved through other tration is adequate. As the Imam high- means than poppy cultivation. However, lighted, ‘The district government told us it is recognized that the effects in this about poppy eradication so we have regard are fairly limited and poppy stopped growing poppies. We go to the cultivation is still deemed to be district government when we need lucrative. something, like an intake, flood protection ACKUsystem but they cannot help us. They do not undertake such schemes, they are more concerned with security. At the provincial 6. The community without a CDC level there is no relationship. We have asked MRRD for help before and we have waited a For comparison purposes and to show the long time and still no help is forthcoming. real impact of NSP the matched non-NSP We have no reason to be optimistic about community of Bahsawal in Mohmamdara the future.’ District was selected.

The village of Bahsawal is 55 km from 6.3 Prospects for NSP Jalalabad and 10 km from the Pakistan Most people had not heard of the NSP; border. The majority of the men are unem- those who were familiar with the NSP had ployed, only finding occasional labouring heard about it on the radio and in the news- work in Pakistan. The only community infra- papers, but were unaware of the NSP’s structure is the school, mosque, and objectives and rationale. Once the NSP ANNEX A9: community centre. It is a poor area, similar process was explained the initial reaction NANGARHAR PROVINCE to the other research bases with the was broadly positive, although the leaders

287 were slightly suspicious that the CDCs Brief Description might undermine their status. In addition all Project Name: present maintained that the community is Construction of Protective Wall, always unified. However, it was universally Intake and Irrigation System agreed that any programme that could Length of intake: 250 m address some of their basic priorities would (+80 m extra) be welcome and as one elder enthused: ‘If = 330 m we had CDCs everywhere we can formulate Top width: 0.6 m development across the country. There will Bottom width: 3.5 m be no need for government/aid agencies to Height: 6.5 m ask what we want they can just go directly to (including foundation) the CDCs!’ Benefited communities: Sholana, Khanan, Miagan and Gulshir Benefited families: 523 Land irrigated: 10,000 grebs 7. The Household Survey Total cost: Afs 5626273 US $112,525 1. Sholana, Chaparhar District NSP Contribution: Afs 2063646 (NSP nearly completed) US $41,273 2. Balle Dehe, Sorkhrod District CDC contribution: Afs 562627 (NSP recently started) US $11,252 3. Basawol, Mohmahandara District Project status: (matched non NSP community) Nearly completed (on third instalment)

The main project is an intake channel which 7.1 Sholana, Chaparhar District, brings water from the river to the land sur- Nangarhar (NSP nearly completed) rounding the community; the intake also acts as a protective wall. The intake and Profile (information from FP and CDC) accompanying irrigation scheme are nearly The village of Sholana in the foothills of the finished: all that is remaining is to complete Tora Bora is 45 km away from Jalalabad; the 30 m of pointing on the sides of the canal access road is in a poor condition with only and cover the foundations of the wall. The 10 km of tarmac. Chaparhar District is con- other NSP project, now completed, is for sidered to be a difficult place to operate due sheep rearing where vulnerable groups – to the high levels of insecurity and inade- widows, orphans and the disabled – are quate roads. Sholana is a poor district, too given two sheep. far from Jalalabad and not high enough up the Tora Bora Mountains to benefit from a Sample better climate. According to the MRRD and Representatives of 12 households (12 men) BRAC, and confirmed by the research, the were interviewed. Interviewees were vast majority of the population of Sholana contacted in advance and the interviews are poor to middle income, the majority were conducted in the individuals’ houses. moving between the two states as fortune Under the circumstances the sample was (and poppies) allow. Most men are farmers ACKUconsidered as representative as possible or labourers, either for landowners in given that a random sample was not Sholana, in the poppy fields (seasonal, but possible. relatively well paid)* or in Pakistan. Each family has typically a high number of Respondents came from 3 areas of the dependents – children, elderly members, community. disabled and widows/orphans. All people in Chaparhar are Pashtun. The CDC, FP and evidence from the MRRD define the community as ‘poor’ and only *Many of the community males benefited one respondent defined his household as from working in the poppy fields before it ‘middle’. The vast majority were poor was banned by the Taliban. Now, due to less because of lack of arable land and non-agri- central control, poppies are once again cultural sources of income (one middle, 11 starting to be cultivated in the area and poor). providing some much needed employment. The average household size was 14 (largest 30 smallest 7). Three nuclear families in THE PROVINCIAL which husband and wife were outnumbered FIELD SURVEY REPORTS

288 by their dependent children. 9 families of homes destroyed or partly destroyed by more than one generation and/or adult bombs or missiles. Two of these had never- siblings living together in which adults theless remained throughout the war. Two outnumber children. The average number householders had migrated due to drought of children was 6 (apart from the nuclear and unemployment (rather than fear for families, not large numbers of dependent their lives) to Jalalabad and Sholana. One children but see below). had a son imprisoned by the Russians and then released in a prisoner exchange. One The majority of householders (10) defined had a son killed. Respondents were keen to all those not wage earning or generating tell of the injustices suffered during the war, income as ‘dependent’. However, in two especially the deaths and injuries suffered. cases, the wife of the householder was However one respondent said he had been apparently not included in the total of unaffected by the war. dependents. On this basis, the average number of dependents was given as 13. The Taliban period was associated with This, in all but two cases, included all relative stability although some disliked the women, whether able to carry out domestic hard-line approach, as one respondent work or not, and all children. It also commented, ‘Under the Taliban I had to included a number of men, either unem- pray 5 times a day, now I only have to pray ployed younger men or the elderly. twice – I am happier now!’ However, the one case mentioned of a disabled head of household, a father unable The majority of the respondents (9) did to work, was not counted as dependent. think life is better since the fall of the Similarly, a disabled son in another family Taliban and end of the war. At least one had runs a canteen and was logically not felt able to return home. Three spoke of counted as dependent. One family was sup- better opportunities for work and business. porting 3 widows (who might have been Two saw the NSP as bringing work and the elderly) but 3 wives were also seen as prospect of more work in the future. One dependent. No other adults who might be thought having an elected shura responsive unable to contribute their labour to the to their needs was a big improvement. household due to sickness or disability were Three simply felt happier and felt they had specifically mentioned, though they may personal freedom since the Taliban had well have been present. gone. Two cited the end of the drought as a good omen, due to the demise of the One reason for this perception of depend- Taliban according to one, and to the return ence might be the fact that the households of the King for another. sampled were all landless (no farmers were included) and therefore totally dependent Three however felt insecure in the new on income from external sources. situation. One said security had been very Perceptions of the status of women and good under the Taliban but now they are their work in the home seems to be another fearful. Another said the security situation reason. was worse and as government employees they were always fearful. Another was The mainACKU or important livelihood activity in concerned that poppy cultivation that 4 households was given as labouring. In one provided opportunities for labouring jobs case 4 sons working in poppy cultivation. would be banned again. Three households had members who are teachers. One household was supported by General understanding and awareness two police constables, one by a government The respondents’ replies to questions about worker. Two families had skilled trades: one the CDC/NSP and government suggest that as masons and one with a tailoring shop. there is a gap between the intrinsic process One was a general shopkeeper. Additional of NSP and how this is understood by non- incomes were earned by an engineer and a CDC members in the community of flour-mill worker in one family, and a Sholana. They mostly saw it as a community security guard in another. development project, rather than the creation of a new form of governance, War experience/post-war situation though they recognized its value in The area was very badly affected by the promoting greater unity. Russian invasion and many people fled to ANNEX A9: Pakistan. Six householders interviewed had They were however, well informed about NANGARHAR PROVINCE migrated to Pakistan. Six had had their the working of the CDC and the project in general terms but did not follow it in detail.

289 They all understood that NSP is a govern- Financial management ment programme while appreciating the They were all certain that the Block Grant work of the FP. They were also conscious of had been spent, in instalments on the pro- the government’s limitations in providing tection wall and intake and on sheep assistance for the recovery of the country, rearing. However, none could clarify how, given the lack of resources and the security for example, finances were managed, trans- situation. Nevertheless, the majority parency shown or how procurement took thought it had good plans and is interested place, though they expressed confidence in in their community. the CDC mechanism and its members.

History of the CDC Impact of the NSP/CDC All respondents knew that the CDC was In answer to the question, ‘What does some form of shura and that its representa- NSP/CDC mean to you?’ all respondents tives were elected through clusters, a referred to it as a project but descriptions of process everyone questioned took part in. its purpose varied; but most were They also knew that an electoral commis- concerned with reconstruction and devel- sion of 4 had been selected, but did not say opment: 4 described it as a development how. They all estimated that the CDC had project; 3 to help the poor/alleviate poverty; been functioning for about a year. 3 respondents described it as a government assistance or reconstruction project for the However, all respondents questioned high- whole country; 3 mentioned that it was lighted that the community has always aimed at poor/rural communities; one known what its priorities were and that the simply equated it with the village intake former shura was able to define these pri- project. Only two mentioned the social orities. The difference now is that there is aspects of the programme: ‘to bring unity’, funding available to meet those priorities. ‘to cement people together.’

CDC today Nine respondents claimed that the NSP had Functioning and legitimacy improved their own lives as well as the All knew that the CDC would meet after community as a whole, mostly due to the Friday prayers and all were able to give a protection from the floods, irrigation of very brief explanation of how the CDC land, temporary employment and improved could select members and vote on priorities agricultural productivity. Four also noted that benefited the community. All were of greater unity in the community. As one the opinion that the CDC leaders were now respondent said, ‘The NSP has helped a lot, the genuine leaders of the community and we are more united as a community and not maliks or local warlords. However, they have a project that gives us hope and I can were unsure if the CDC were working with also produce more wheat.’ government and thought that it was the former Maliks who did. Tw o respondents said the NSP had not benefited them personally, though one said Projects the villagers as a whole were happy and ben- All knew that the project was a govern- efiting from the project. One (a teacher) ment/MRRD initiative implemented through ACKUsaid, ‘No, it has not helped us.’ BRAC. They all knew how labour was assigned and that there were specific days They all cited the FP as the main help when they had to work. Though none had besides the programme itself. actually participated so far, they said there were no problems in getting people They also generally agreed that there was involved. (The work was in fact delayed due more unity in the community as a result of to disbursement problems but they did not meeting more frequently and sharing mention this.) They were confident that the problems. CDC dealt with everything. All the respondents were able to mention They had not heard of the CDC approach- additional positive changes resulting from ing any other organizations for funding, but the NSP. Most (7) mentioned material knew that the CDC has a plan for the next changes: the water wheel, easier cultivation, project because it would follow the list of higher crop yields, more employment. priorities that everyone in the community is Three saw better prospects for the future familiar with. due to the ability to discuss development THE PROVINCIAL (1), and skills for future projects (1); greater FIELD SURVEY REPORTS

290 hope for the future (1). Two mentioned Benefited families: 269 here greater unity. Total cost: Afs 1103004 US $22,060 Perceptions of government NSP contribution: Afs 1002731 Respondents had mixed views about gov- US $20,054 ernment plans for the country. Four thought Community the government did not have the capacity to contribution: Afs 100272 implement any plans. One of these did not US $2,005 think it had any plans beyond guaranteeing Project status: ongoing security, ‘Government is busy arranging security for the people and it has not time to The only project for which construction has think about other aspects of life.’ The others started is for the road and culvert system. credited it with having plans but not the Culvert construction is already underway in resources or ability to implement them. preparation for the road construction. Four others thought the government has Already the newly constructed culverts are good plans for the country and their future. having a positive effect on the existing irri- One of these suggested government had gation systems. other plans like the NSP. Three said the government has no plans, one adding that only Sample NGOs work. One feared the government Representatives of 7 households (all men) plans to eradicate poppy cultivation. were interviewed. Interviewees were contacted in advance and the interviews Confidence in the future were conducted in the individuals’ houses. All respondents cited employment opportu- Under the circumstances the sample was nities as the one thing that would transform considered as representative as possible their lives. Finally, all respondents were opti- given that a random sample was not mistic about the future because they have possible. In addition the sample was similar seen the benefits of government help in the to that of the community of Sholana in that community with the NSP, and life is now all were ‘poor’ and had many similar liveli- better than under the Taliban. hood characteristics.

Respondents came from 3 areas of the 7.2 Balla Dehe, Sorkhrod District community. (NSP recently started) The CDC, FP and DRRD define the community as ‘poor’ and all Profile (as given by the FP and CDC) respondents described themselves The village of Balla Dehe is 25 km from as such. Jalalabad to the northwest, along a road The average household size is 10 only partially tarmaced for the first 10 km (smallest 5, largest 16). Three were from the city. Like Chaparhar, Sorkhrod nuclear families of husband wife and District is considered to be a dangerous children (average of 6). Four families district to conduct the NSP. Balla Dehe lies consisted of adults of more than one in an arid valley in the autumn/winter whilst generation, or siblings with their in the ACKUspring/summer the snow-melt from spouses and children. The average the mountain ranges is channelled through number of children in these several wide rivers nearby. The vast majority households was also 6. of people in Balla Dehe are considered to As in Sholana, all those not earning be poor, and despite their relatively close (women, unemployed men and proximity to Jalalabad few travel to the city children), were described as to work. Most men are farmers or labourers. ‘dependent’ (average 8) though none The average household size is 11 persons were said to be disabled, sick or elderly. with many dependents – children, the Four respondents were illiterate. elderly, widows, orphans and the disabled. All respondents were Pashtun. All people in Sorkhrod are Pashtun. Two householders were farmers; two were drivers for an NGO. One of these Brief Description had two brothers working as teachers; Project name: one was a shop owner; one a carpenter; Construction of Road and Culvert one family had 3 men working as Length of road: 798 m labourers. ANNEX A9: Width of road: 4 m NANGARHAR PROVINCE No. of culverts: 13

291 War experience/post-war situation road project, and they identified further Four of those questioned in Balle Dehe said projects as the main factor for improving they were not affected by the war. However their lives. The majority expressed one went to Pakistan to avoid recruitment optimism for the future, though often as a by the Communists during the Russian matter of faith. A minority were extremely invasion of Afghanistan. Two others negative about the future. migrated, one to Pakistan and one to Jalalabad, but this may have been for History of the CDC economic reasons. One respondent who All respondents agreed that the CDC was said he was not affected, noted that girls some type of shura, though two still saw it were left illiterate as a result of laws under in traditional terms calling it, for example, ‘a the Taliban. gathering of elders’ or ‘elders shura’. Two others described it as an advisory council or The majority (6) maintain that their lives decision-making forum. One thought it was have improved since the change of govern- a ‘four member forum’. Only two recog- ment. Two said they had freedom (though nized its democratic role as ‘our representa- no other personal change); two said there is tive forum’. more employment. One of these (working for an NGO) attributed this to the govern- Responses varied as to how long it had ment encouraging foreign assistance; two actually been set up (from two–six months) were already noting benefits in more water and no one knew how the election commis- for irrigation and better crop yields due to sion was set up. However, they had all voted the project. One respondent noted no although they did not appreciate why they change in his life. had to vote or the actual voting process.

General understanding and awareness There were different ideas on how priorities The respondents’ replies to questions about had been set before the CDC. Three said it the CDC/NSP suggest that there is a gap had not been done before. Three said the between the intrinsic process of the NSP elders decided, and one said it was done ‘in and how this is understood by non-CDC the Mosques through the people’s partici- members in the community of Balle Dehe. pation’. However, this is to be expected as the CDC has only been working for a few months and CDC today construction work has only just begun on Functioning and legitimacy the road project. All respondents knew that the CDC met once a week but opinions differed on where They seemed to lack full understanding of and when. the democratic/representative nature of the CDC, though they had all voted for it. It They were all able to explain the CDC seems clear that the CDC, for example, has process from community mobilization, not yet fully assumed the role of represent- voting for the CDC, identification of priori- ing the community to government. ties, the community development plan, to However, they all understood the process of the receipt of funds and the project. establishing priorities and choosing the ACKU project as well as the receipt of the money Six respondents named the CDC leader, and the way the participation in the work Malin Mohamed, a teacher ‘with a good was being allocated, though they thought past’, as the leader of the community (Mr others did not. They also understood that Mohamed has always been a prominent the NSP is a government programme member of the Balle Dehe community). administered by the MRRD and the FP. One respondent said he did not know. However, they had no understanding of the detailed financial management of the When asked who works with the district project and seemed to be content to leave it government, respondents revealed that the to the CDC. CDC’s role as community representative has still to be established. Four said that the They had little knowledge and less confi- CDC does make contact with the district dence in the governments plans for the government but one added that the govern- country but most were prepared to concede ment has no interest. Two other respon- that it is interested in their community. dents shared this view, one saying the district government is too busy with other THE PROVINCIAL For them the main impact of the CDC has matters like security. FIELD SURVEY REPORTS been the benefits to be gained from the

292 The respondent who ‘did not know’ who When asked what else had helped them the leaders are, said unequivocally, ‘The they said ‘Only BRAC’. maliks contact the district government.’ All agreed that the village was more united Projects as a result of the CDC. Three described this All knew that the NSP was a government/ as due to working together on the project MRRD initiative and knew that BRAC was and all benefiting from it, ‘The road project the FP. has been a rallying point’; ‘Yes, we have seen what we can do as a community’; ‘Yes, All respondents said they had helped (or because everybody uses the road without will be involved in) labouring according to discrimination, even the poorest. Three said their agreed allocation, in the construction it was the frequent meetings that brought of the road. people together: ‘Due to frequent meetings we become aware of each other’s problems On the level of participation in general most and try to solve them’. One said it was due thought there had been problems: one said to being represented by the CDC, ‘Yes, we ‘some people were too poor to become are more united because we are repre- involved’; 3 suggested people did not sented by the CDC.’ understand because of illiteracy; two suggested it was ‘complicated’, there were When asked what other changes had ‘petty personal conflicts’. However, one said occurred they all reiterated the view that clearly that there were no real problems, there is a greater feeling of unity, and that ‘people know what is bad and what is good they know each other more now as a result even if they are illiterate’. of more frequent contacts.

Four respondents were aware of another Perceptions of government project being considered: two referred to a There was no broad consensus about the dam and two to an electricity project. Three government plans for the country. Three said they did not know about future were doubtful if the government had any projects. plans. One said it must have good plans but he had not heard of them. Three others Financial management thought the government had plans but two None of the respondents was able to explain said unless there was peace it could not how the finances, procurement procedures implement them. The third said it lacked or other administrative procedures work the resources. within the CDC; they are content to trust those appointed to the various tasks, which Four thought the government is interested includes the spending of the Block Grant. in their community. Three thought it is not and one said ‘probably’. Impact of NSP It must be remembered that the NSP is rela- Confidence in the future tively new in Balle Dehe. However, When asked what would most improve their responses on the impact of NSP were lives they all spoke of further development broadlyACKU positive. All the respondents cited projects: options varied from an electricity that the NSP was a forum for discussion and booster, intake/flood protection, water valued it for the project. wells, agricultural projects and an extension of the road. It was the impact of the road construction that they all cited as how NSP/CDC had Three expressed simple optimism about improved their lives, by improving access to the future, because they had ‘tasted markets, both to buy and sell. As one improvement’, have the road and the respondent said, ‘Yes, there are positive Taliban are gone. changes due to the road project; land prices Two others were cautiously optimistic have increased and transport costs are but still worried about security as one reduced’. Another person clarified, ‘Yes, respondent stated, ‘We are tired of war, there has been a big social change; it is we want peace, development helps us easier for people and goods to access our to live more peaceful lives’. village. Before goods were expensive now Two were pessimistic. One said, ‘ No they are cheaper and we can take our nothing will really change, who’s in ANNEX A9: produce out of the village to sell.’ power? Many former warlords’. Another NANGARHAR PROVINCE stated that, ‘No CDC or a road will make much difference’.

293 7.3 Bahsawal, Mohmamdara District Six of the 7 respondents were illiterate. (No NSP) All respondents were Pashtun. Five families earned a living entirely Profile from labouring, two mainly in nearby The village of Bahsawal is 55 km from Pakistan. Jalalabad and 10 km from the Pakistan One respondent was also a labourer border. The majority of the men are unem- but his brother had a shop. ployed, finding occasional work in Pakistan. One family had no income, ‘We ask from The only community infrastructure is the shops and I pay when I have money’. school, mosque, and community centre. The only other ‘development initiative’ in War experience/post-war situation the village was a hand pump from DACAAR. The community was badly affected by the Russian invasion. One said he lost his Sample animals to the Russian troops and his house Representatives of 7 households (7 men) was looted by the Communists. All had were interviewed. Interviewees were migrated to Pakistan. When they returned contacted in advance and the interviews they found their property destroyed by the were conducted in the individuals’ houses. Russians. Under the circumstances the sample was considered as representative as possible They thought some aspects of life have given that a random survey was not improved since the fall of the Taliban possible. In addition Bahsawal is an appro- (cursed by one respondent). Two thought priate ‘matched non-participating there were a few more job opportunities, community’ that has similar characteristics but not in the area and hard to get. Two to both Sholana and Balle Dehe. others simply said there were no employment opportunities. Four thought security Respondents came from 3 areas of the was much improved; one mentioned that community. some people were disarmed and the power of warlords reduced, another welcomed the The DRRD and FP data defines the fact that children can go to school. community as ‘poor’ and only one respon- However, two pointed out that their dent defined his household as ‘middle’. The personal situation had not improved, they vast majority were poor because of the lack remain poor. Two commented on improved of arable land and limited non-agricultural governance: that an elected government employment opportunities. has been established; that there are new personnel in the district administration. The average household size is 20 (smallest This last respondent also highlighted that 4, largest 57). There were two small nuclear there is now a unity among people, ‘Before families of a husband and wife and children some of the villagers were Communists (two and 4). The larger households had at working with the government whilst others least 14 members, including adults of were Mudjahadeen and migrated to different generations and siblings with their Pakistan; now we are all living together’. spouses. The ratio of adults to children in all However, this view was not shared by others families was between 1:1 and 1:4. ACKU(see below).

As with the two CDC communities the General understanding and awareness householders defined all who do not earn The respondents held divergent views on as dependent. In one case the whole family most subjects except what is needed to of 14 were dependent on ‘neighbours and materially improve their lives: the need for the goodwill of others’ because none had employment and income generating oppor- work. The nuclear families were supported tunities, and irrigation and drinking water by the husband. In the two largest families projects. Their responses indicate that the over half the men were working; in the community does not have an undisputed other two, half and one in 4. leadership, though the majority recognize some form of traditional authority. They had As well as economic dependents, the two been deeply divided politically by the large families also supported, in one case, elections and while they had all fled from two disabled women and two widows ,and the Russian troops and also had little in the other two elders and a disabled sympathy with Taliban authority, some of daughter. the more religious were also suspicious of THE PROVINCIAL continuing Communist influence. FIELD SURVEY REPORTS

294 A few had heard of the NSP or of other gov- approached. Two said they had no idea ernment plans, but this did not encourage where or who to contact. Three were disil- them to be particularly optimistic. They lusioned by the contact with MRRD, ‘We were waiting to be convinced by tangible have contacted the MRRD, but they just evidence, not only of government inten- offer us lip service; there have been no tions, but ability to maintain security and practical steps taken to help us’. deliver economic improvement. Others were totally negative about government and Two respondents had heard of the NSP the future. through the radio but one did not know what it is for. The other thought it was However, when the NSP was explained to something to do with rehabilitation. them, they reacted positively, though several saw that it would challenge the priv- After a brief explanation all respondents ileged (and some alleged, corrupt) position agreed that the NSP would be beneficial to of the present leaders. Basawal but some had reservations, ‘It would be difficult to convince the malik and The community today elders… if there was a CDC with everything When asked who leads the community transparent the elders and malik would lose today the respondents either said there was their lucrative positions’. (One accused no formal leadership (2) or that the them of appropriating aid that had been community was led by a tribal malik or given in the past.) maliks, or the community leaders led by a malik or by the elders and Mullahs. This Perceptions of government reflects the informal arrangement described Four respondents had a negative perception by the leaders to the researchers. of government saying it had no plans for them: one respondent stated that, ‘The gov- Only one respondent said the ernment only has plans to eradicate opium, community is united because they are whilst at the same time adultery, drinking all one tribe. Another said they were alcohol and every other vice and evil only united if there is a problem practice is free’. Another said, ‘The govern- (i.e. an external threat). ment has no plan for us; throughout our Three said they had been deeply divided history the government has never helped by the parliamentary elections. ‘The us’. elections divided us into small pieces.’ Two said there were problems of Three respondents thought the govern- leadership, ‘The elders say they unify ment has plans to reconstruct the country. us but they do not’; ‘Too many people All 3 thought it aimed to expand/improve think they are in charge’. education, one mentioned electricity, another agriculture. Two recognized that it On the subject of determining community did not have the resources itself and is priorities, 3 said the decisions are made by seeking foreign assistance; however, as one the elders and maliks. One of these said put it, the government wanted to ‘invite they had drawn up a list of needs and Afghans to return home, and reconstruct submittedACKU it to the local administration but the country’ but acknowledged that ‘Karzai had no response. has no money and there are still many weapons and warlords are controlling the Three other respondents said decisions government.’ were reached in the mosque. One said he did not know. Unsurprisingly 4 were adamant that the Five respondents said they had government had no interest in their participated or were ready to participate community. One was unsure because he in community repair work, usually after had seen no visible change so far. One a flood. Two said they had not. thought it is interested but has no Four thought the leaders, (3 said the resources, and only one believed the gov- malik) were in contact with the district ernment was interested in rehabilitating the government, but one added, ‘they give village. us nothing’. Three said there was no contact. Confidence in the future Six of the respondents saw the creation of ANNEX A9: The respondents knew of no organization employment/job opportunities – by setting NANGARHAR PROVINCE other than MRRD that had been up factories (3), improved irrigation to

295 increase agricultural yield (2) – as the main Annex 1: Laghman Province factor that could improve their lives. In addition, clean drinking water supply was Comparisons between Laghman and mentioned by two and one wanted food aid. Nangarhar show that the conditions in The seventh respondent wanted good which NSP operates in each are very schooling with teachers from outside the different. Therefore Laghman is briefly area who are ‘not Communists, who are analyzed separately. There are two FPs in brainwashing our kids’. Laghman – Maderia (French) and DACAAR (Danish). The respondents expressed little optimism for the future. One asserted his optimism simply through faith, because ‘God is A1. Maderia communities Great’. Two were prepared to be optimistic 9. Mashina only if national security is fully established, 10. Shertabad one also requiring an increase in job oppor- 11. Hussain Abad tunities. The other 4 were pessimistic: ‘I don’t see any light’, said one, whilst another Community profiles maintained that ‘Karzai has appealed for Mashina, Shertabad and Hussain Abad are assistance from all other countries, but located around 50 km away from Jalalabad where are the benefits here?’ One however, and 50 km away from Mehtarlam, the although he was not optimistic, did think Provincial city for Laghman. The communi- the peace will last. ties are similar: they are situated on fertile, well irrigated plains, the vast majority of people own land and can grow many crops including courgettes, lemons, grapes, cauli- flower, cotton, sugar cane, maize, rice and wheat. Most people are farm labourers; their excess produce is sold mainly in Jalalabad, Kabul or Mehtarlam. The access tracks are in generally poor condition; the ‘bridges’ over the deep irrigation channels are especially bad. The average household size is 9 with many dependents; all people are Pashtun and the area is less socially conservative than neighbouring Nangarhar, with higher education levels. All the CDCs are relatively new and are in the process of identifying priorities. All the feedback is similar to the Nangarhar research with some notable exceptions:

The CDCs Even though NSP is a new concept, ACKUthe CDCs are starting to take on a role beyond project implementation. Conflict management, social mobilization and community arbitration are also undertaken. All members of the CDC are literate and mainly retired from high ranking positions within the army or civil service. The jirga in Kabul again played a central role in convincing CDC members of the worth of the NSP. Opportunity cost of participation.

Training The training received has been very useful, everybody had a much better THE PROVINCIAL knowledge of the training and could FIELD SURVEY REPORTS discuss it as it followed in the manual.

296 Unity 3. Kahoo and Chinnar Kali, Alishang Until the NSP came along, there District were still splits in the community – 4. Tangi Shakarman, Alishang District Communists and Mudjadeen; now 5. Qala I Halim, Alishang District we are all together working out our priorities and solutions jointly. Koarigi, Alingar District: MHP in the process of construction 7.8 kW, have Project weekly construction plan which is The road will mean it’s cheaper activated during construction, and easier for us to take goods to i.e. when there is the money. Kabul/Jalalabad. The land owner will Kokhi, Alingar District: MHP completed, make more money and so his wife electricity poles up, 8 kW, 1 kW = Afs 4, and his labourers will also benefit! every house has meter, now we can have light, use computers, watch DVD Future and videos and listen to music (no General high levels of optimism, national TV coverage). People are not especially whilst HA is in power using kerosene lamps which were (he hails from Laghman). dangerous. Excellent project. It is good that we have more control. Kahoo and Chinnar Kali CDCs: 3 km An NGO came here before and did not road construction through mountains, show us anything, and then just built pneumatic drills to cut through rock a school. (dynamite forbidden by NSP!!). Very If we have village unity we have the impressive, extremely labour-intensive, basis for national unity. before road it was a 4 hour walk to the nearest village and men would have to Women’s CDC take women on their backs; now Women voted only for female CDCs, vehicles can be used. Cars mean that the but were completely aware of the cost of goods are considerably cheaper. structure of the NSP, objectives, We used to have to hire a donkey for roles and responsibilities etc. Afs 400 to take produce up to the NSP has given women more power; village, now the same amount of they had one disagreement with the produce is only Afs 80 in a car. There is men and said that they would boycott no arable land in our village so we have the election for CDC members unless to fetch produce from the valley below. the men agreed to their request, If government support continues we which they duly did. can maintain it, we have a maintenance The women shared the priority of the committee. Already some of the villagers road, ‘Laghman women are usually fat have purchased cars and are using them so their husbands do not like carrying for commercial activities (they earned them along a track to the clinic. money through labouring in Pakistan However the road will mean or Kabul). 1.4 km still to go. a car can be used.’ Tangi Shakarman Alishang: Road project, The women even identified their own widening existing track for vehicular priorityACKU as culverts to complement the access, labour-intensive, each person road. earns around Afs 120 a day. Usual Women are informed by the men at benefits and maintenance plans. each stage. Under construction. Most women are illiterate, but are still Qala I Halim: Canal and aqueduct: capable. Decent technical specification, still The priority of the road is a joint priority under construction. and women are fully supportive.

A3. Comparison between A2. DACAAR communities Laghman and Nangarhar Five DACAAR communities were visited; General levels of development are with the exception of Kahoo and Chinnar all much higher in Laghman, life is less had similar community profiles to the of a struggle, education is better and Maderia communities above. people are certainly more capable of participating fully within the NSP. ANNEX A9: 1. Koarigi. Alingar District The inclusion of women in the NSP NANGARHAR PROVINCE 2. Kokhi, Alingar District is generally good, with several female projects completed and underway.

297 Community priorities are similar – road/culvert, MHP, wells (same links to PR). Unlike in Nangarhar where the CDCs seem more passive and reliant upon the FP, in Laghman they appear to take much more of an active role, showing initiative and a much greater understanding of the process. This is not necessarily because they have received better training from Maderia or DACAAR, but their levels of development are much higher to begin with, thus their ability to grasp the salient points of the NSP is greater. Female participation is much better; although most women CDC members are illiterate they appear much more capable.

ACKU

THE PROVINCIAL FIELD SURVEY REPORTS

298 NANGARHAR & LAGHMAN Supporting Photographs

Top: A joint project was found to increase levels of unity. (Sholana, Chaparhar District, Nangarhar)

Middle: Example of a joint initiative – a waterwheel. This bodes well for the sustainability of the original project. (Sholana, Chaparhar Province, Nangarhar)

Bottom: Promoting the NSP at every opportunity in Sorkhrod District, ACKUNangarhar.

ANNEX A9: NANGARHAR PROVINCE

299 NANGARHAR & LAGHMAN Supporting Photographs

Top: Raising awareness of the NSP at the construction site in Sholana, Chaparhar District, Nangarhar.

Middle: As a result of NSP, more wheat can be grown. Now farmers in Sholana, Chaparhar District, Nangarhar, can grow 450Kg of wheat, up from 50kg before the NSP project.

Bottom: The construction of the road in Kahoo and Chinnar Kali, Alishing District, Laghman, has reduced the cost of transport substantially. Before the project people had to hire ACKU a donkey to carry produce between Kaboo and Chinnar Kali, at a cost of Afs 400 a time. Now, due to the road, the same amount of produce can be taken in a car for only Afs 80.

THE PROVINCIAL FIELD SURVEY REPORTS

300 A10 Paktia Province Provincial Field Research Findings

1. Timing and scope of the research improvement programmes in addition to NSP, for sanitation, health and construction A rapid appraisal was carried out in the etc. (probably the same national pro- province on 25–26 October, by the grammes as elsewhere). Engineering Consultant and two Afghan researchers from the Kundoz team.1 The main purpose was a technical appraisal of 2.2 Experience of community the implementation of engineering projects, development with the NSP but the researchers also took the opportu- The Director has worked for 15 years in nity to conduct a limited number of inter- community development work during and views, applying the general research guide- after the war. The Community-led lines, and to make informal enquiries about Development Department (responsible for the functioning of the CDC. NSP) was set up after the establishment of the interim government. Persons interviewed: Director of DRRD He described their active supervisory role in CDC members in Bar Dawlat Khel, the programme. They work directly with the Nader Shah Khel and Fatch Khan Khel CDC, overseeing their activities and Householders in Bar Dawlat Khel verifying the accounts. The FP’s performance is judged on the effectiveness of the projects, their quality and benefit to the communities rather than quantity. 2. MRRD provincial and district management in Paktia He considered the NSP to be one of the ACKUmore successful government programmes, The Director of the DRRD was interviewed ‘which invites the public to obey the rules in his office in Gardiz. and regulations of central government’ and motivates the district, provincial and national government to work together. He 2.1 Paktia RRD predicted that it would ‘remove anarchy’ The Director said there were 40 RRD staff in from the country and make the Afghan gov- the province, but did not give further ernment internationally acceptable. details. This is similar to the staffing levels in other provinces where about three-quarters are permanent staff and the rest contracted. 2.3 Training and capacity of the DRRD 1 Richard Brown with However, they have difficulty recruiting well The staff had received training in manage- Samiullah Nazemi and qualified staff because they cannot offer ment and accounting and technical training Kushal Akhtar. high salaries. In fact they are generally to enable them to implement the NSP. under-resourced and lack modern However, the most useful input had been equipment. staff capacity-building, given the fact that the staff are not qualified in the fields in The Department is running other rural which they work. He did not specify how

301 this was delivered, but presumably the OC generator, water supply and culverts; Fatch was responsible. Khan Khel, reservoir for irrigation and water supply. He thought however, that although the staff try hard to implement the projects they still The visits to the projects afforded some have many difficulties due to lack of opportunities to see how the NSP was being technical knowledge, qualifications, managed on the ground, and the household resources and equipment. Implementation survey confirmed some of the observations. problems cannot therefore be ruled out. Nevertheless, the following conclusions can only be tentative since no structured inter- 2.3.1 Other operational constraints views were held with the FP or the CDC on Delays in receiving the project instalments matters beyond the implementation of the are the other main constraint. He attributed projects. the delays not to NSP management, but to the lack of a proper bank transfer system The FP, CARE, seems to have helped each of and the fact that everything is slowed down the three communities to involve the by the ‘ravaged transport system’. community in the identification and prioritization of projects. As a result all three 2.3.2 Coordination with other ministries appear to be relevant to the communities’ He said there were regular meetings with needs and were being successfully imple- representatives of other ministries at which mented, with community involvement, they negotiate and solve any problems that including skills development. (The have arisen. Engineering Consultant’s report discusses their quality and sustainability, so no 2.3.3 Community relations comment is offered here.) It seems He described these purely in terms of the therefore, as the householders’ comments DRRD’s supervisory role. There was no tend to confirm, that the CDC visited have mention of any initiative on the part of the developed capacity for managing CDC to contact government, although he community development projects. said that in the present environment ‘even a guard’s complaint can reach a minister’. It is less clear that the governance objectives of the programme have been fully achieved. However, he did think the CDC could In the first place, the CDC, at least in the become permanent institutions if, over the community surveyed, does not consider next two to three years, the government that the CDC leads the community, nor has helped them to become self-sufficient and the traditional leadership become involved influential in their communities. with the CDC. It was also observed in the same community, that there appears to be 2.4 The role and impact of NSP/CDCs no involvement of women in the CDC and He thought there had been many changes their priority for a project, a school, was not in the communities as a result of the NSP. considered in the choice of projects. This They have ‘legally registered councils’ (in does not necessarily mean that the involve- fact their legal status is unclear but they are ment of women is being neglected. It is officially recognized) whose ‘leaders work ACKUclear that women’s participation in the only for the unity and welfare of the programme is limited everywhere by people’. cultural constraints and their own lack of experience. He expected that as a result of NSP, national unity would increase, corruption would be reduced, there would be economic growth and poverty reduction. The increased 4. General comments on the capacity of DRRD staff is also likely to NSP management in Paktia increase confidence in government. It is clearly not possible to make a general assessment of the management of the programme without inputs from the OC 3. Visits to projects in three CDCs and FP as well as detailed discussion with the CDC members. However, there are indi- The researchers visited the following cations that the NSP concept of governance community projects: Bar Dawlat Khel, water is not fully understood. The Director of THE PROVINCIAL mill construction; Nader Shah Khel, diesel DRRD understands that NSP is directed at FIELD SURVEY REPORTS

302 building the capacity of government and ‘We have improved in terms of security, establishing national unity, but sees this but other improvements will take a from a top-down perspective. The supervi- long time. In my opinion, reconstruction sion of the programme is directed at the in a 25-years war-ravaged country project implementation, not the function- won’t be a simple task. We have lost our ing of the CDC as an institution of national constitution, our army, community governance, and the evidence our police, our education system and from the communities visited suggests that the most important, our national unity this emphasis may be shared by the other all over the country and trust in each implementation partners, OC and FP. other; therefore I can’t say that our lives improved in a short period of three years.’

5. Household survey: Bar Dawlat Khel, 5.3 General understanding Ahmad Abaa District and awareness (From reading the transcripts only) It seems that some in this community were very well 5.1 The sample informed about the CDC and NSP including Six male representatives of households its financial management (which suggests were interviewed in a rapid appraisal transparency and communication). The exercise. Due to the short period of time, majority were less well informed though sampling was rapid and several of the most had some idea of its purpose. They respondents were apparently interviewed also all showed awareness of the broader together (giving or agreeing certain replies political situation. The lack of detailed together). Families ranged from nuclear knowledge of the CDC of some individuals (wife, husband and children) to three gen- seems to be more from lack of erational families with an elderly parent and interest/cynicism about outside help many adults. (16 largest, 5 the smallest). (relying more on their own individual Only one respondent described his family as efforts) than lack of understanding. ‘poor’, the others as ‘average for the community’. Two families earned a liveli- However, it was also clear that whatever hood from labouring; three from farming their view of the CDC, they still thought that with additional income: one from labouring, the leadership of the community remained one from small business, one from the with the tribal council. In other words, they salary of an office worker. One family repre- welcomed the NSP as the only programme sentative was a carpenter. Probably all were that had effectively delivered community ethnic Pashtun (only three were recorded). projects, but did not see it as changing the way the community governed.

5.2 War experience/post-war The responses suggest that the village was 5.4 The history of the CDC subject to episodes of violence rather than Estimates of how long the CDC had been wholesaleACKU destruction and expulsion, in that functioning varied from 4 months to two most remained in their homes. years (perhaps taking the date from the Two respondents each mentioned only that beginning of the process or from the date of one relative was injured in the war. The election?) poorest respondent said his house was looted and two family members ‘martyred’ Two respondents gave a correct definition by the Soviet troops. Another family had of the title. One explained that it was a rep- three members killed and one had two resentative council. One said it was a injured and the house damaged. Only the council for running the NSP project and two carpenter had left as a refugee to Pakistan thought CDC stood for Community and Iran. Development Consultant. (Suggesting that for at least 3 respondents it is a project man- Three agreed without further comment that agement committee only.) things were now better. One specifically mentioned the NSP. Two thought that only Three respondents said the election was security had improved. One of these (the overseen by CARE International. Three said ANNEX A10: poorest member of the group) said: they did not know how it was organized, PAKTIA PROVINCE one saying he was away at the time. One

303 said he and his whole family had voted. Two However, 4 had participated in the project others had also voted. The carpenter had work, though two said that they had other not yet returned from exile; another was demands on their time. Two others said they also away, and one sick. were not free to participate.

Three said that in the past community pri- Three thought the other villagers had par- orities were set by the traditional leader ticipated. One said his brother had. The two (Malik), as one explained, ‘We have tribal who had not participated did not know who councils in Paktia which make plans for and else did. manage all social affairs of our communities’. Two said it had been the governor. The Those who participated thought there were carpenter said he didn’t know because he no particular problems for participation wasn’t there. other than the people’s illiteracy so that it took time for them to understand (the advantage?). 5.5 The CDC today As to the future plans of the CDC, one 5.5.1 Projects/ priorities/functioning thought that the CDC was already planning of the shura new projects. The others didn’t know but While there was general agreement that the expected it would be. Three said the community is still led by the Malik, most community had had many contacts with were also happy with the work of the CDC other funding agencies. Two cited the IOM even though their knowledge of it was in women’s literacy course. some cases vague. 5.5.2 Financial management They all gave the name of the tribal leader Four did not know how the finances were (Malik) as the leader of the community, one managed by the CDC. Two clearly under- pointing out that he is not on the CDC. No stood the processes and had seen the docu- one saw the CDC as leading the community. mentation. What the Malik did was less clear. Three thought he did not work with government, one didn’t know. Two thought he worked 5.6 Impact of NSP/CDC with the district government, one suggest- Most had grasped something of the purpose ing ‘He does, but for bonus’. and concept of the programme, though some seemed to have some misconcep- As regards the CDC, 4 thought the CDC was tions: working well and representing their interests. ‘Well, very well, we are happy with Three respondents knew that NSP our CDC, because it works for our welfare meant ‘National Solidarity Programme’. and with the suggestion of our community; Two said NSP was a donor. Three they don’t make decisions without our sug- described the CDC as a community gestion.’ One was waiting to see, and one or community development council. misunderstood the question. Two thought it meant ‘community ACKUdevelopment consultant’. The poor As to the details of its functioning, 3 thought labourer was the most articulate and the CDC met once a month, one twice a enthusiastic: month and one ‘when an issue arises’. One ‘NSP/CDC means national unity. said he didn’t know. NSP means formation of nations. NSP means removal of adversities all On the subject of the project, most were over the country. also unclear of the arrangements. Three NSP means removal of tribal, racial thought that CARE International had and language biases. initiated the mill project. One of these NSP means economic growth all over didn’t know where the money came from, the country.’ two thought NSP. One thought the government and CARE had initiated the project Opinions also differed as to the impact it and it might be international money. One had on their lives, but none thought it had explained that MRRD was responsible and been very great so far. Two said their lives implementation was through facilitating had not improved as a result of NSP or partners. One did not know. anything else. THE PROVINCIAL FIELD SURVEY REPORTS

304 Most saw some social improvements: two said the community had become less clannish and one said that there was greater security. Four thought the community was more united, but two said it was only ‘comparatively’ better.

At this point 3 said there were no other changes, but the others mentioned the water mill and one said he expected things to improve and said the only assistance before was one well, provided by CARE.

Attitudes to government were also not enthusiastic. No one had heard of any government plans, two said they were too busy to hear. They also did not credit the government with much interest in their community: two said it was not interested, one said it was interested, ‘but not much’. Two thought there were signs that it was (such as if it was government supporting NSP).

5.7 Confidence in the future Their priorities for improving their lives were: education (2); electricity (2); employment (2); and a clinic (1).

Four said they were optimistic for the future because there is no longer war (one thought people had learnt a lesson from the war; one that there is now greater national unity). Two however expressed the view that the warlords were still in power and the government weak, so they were not optimistic.

‘I can predict that while the warlords are in power, ACKUour country can’t improve.’

ANNEX A10: PAKTIA PROVINCE

305 ACKU

THE PROVINCIAL FIELD SURVEY REPORTS

306 A11 Paktika Province Provincial Field Research Findings

Timing and scope of the research The DRRD staff argued that they did not The Badghis research team1 conducted a have “enough capacity to handle the rapid survey in Paktika Province from 22–24 projects that we are supposed to handle”. October. Interviews were conducted with While conflicting with the initial total given, DRRD,FP, OC and two CDC. they maintained that they had only two staff in their NSP department but needed “at least 20 people to reach all the places where NSP programmes are running”. It was also 1. Department of noted that were was a lack in capacity “in Rural Rehabilitation and terms of professional training”. Development (DRRD) 1.1.2 Constraints for NSP implementation Meeting Profile Staff noted many problems with processing Interviewee/s: DRRD Director and staff the high number of projects: difficulties in monitoring or assessing the programmes; delays in the transfer of money because the 1.1 MRRD provincial and district number of projects was very high. programme management On the other hand their main indicator of 1.1.1 Training and capacity of the DRRD success used for assessing the FPs was The DRRD staff raised the number of mainly the quality of the project, not the community projects and programmes run quantity. Particular reference was made to by the DRRD including NEEP, WATSAN, the sustainability of the projects. They also MFC, etc to demonstrate their relevant claimed to have not been paid their 2003 experience.ACKU The Community-led Develop- salaries. ment Department was established in 2004. At the time of the research, there were 28 1.1.3 Coordination with other ministries staff members working in the DRRD in DRRD staff noted that relevant ministries Paktika. Other projects included literacy and were “hardly visible here in Paktika” health awareness courses. because of weak capacity.

In terms of training and guidance the 1.1.4 Community relations respondents were invited to Kabul to attend The respondents believed that the NSP had a 14-day orientation programme and were “built firm bridges between the people and given all the necessary training on the NSP the government at the national, provincial, 1 Waheed Omer (Team Leader) manual. The director and deputy director and district levels”. The informants believed with Malaiz Doud and also received a 3-day training course in that there was “no standard complaints Roydar Qutabuddin. community mobilization conducted by procedure”. However, they noted that they BRAC (the FP). They found the latter to be received written complaints, which are very helpful although difficult to understand either tackled immediately or sent to the as it was conducted in English. MRRD in Kabul if necessary.

307 1.1.5 The role and impact of NSP/CDC and between 90–95 per cent of the projects The respondents thought there was a good were eligible from a technical point of view. chance that the CDCs would be sustainable as the NSP has built upon the traditional The OC estimated that the communities shura system. They described their working had to wait one and half months for relations with the CDCs as “friendly and resources after the project approval. cooperative”, with no problems. Conse- quently, they believed that the NSP was contributing to national solidarity because of 2.4 Additional comments the bridges built among the people and on the future of the NSP actors at the different levels. They thought The OC believed that a transfer of responsi- that ultimately this had helped the “govern- bility to DRRD was not possible immedi- ment stretch its authority”. ately, but perhaps within two years.

2. Provincial Oversight Consultant 3. The Facilitating Partner (FP) (OC) Meeting profile Meeting Profile The Name of FP: BRAC Bangladesh Interviewee/s: Head of OC Interviewee/s: Provincial Manager, Venue: BRAC Office in Paktika Provincial Engineer, Provincial Engineer, Master Trainer, and District Coordinator of Muta Khan and Sharana Districts 2.1 General comments on the strengths and weaknesses of the NSP The OC assessed that NSP was “going very 3.1 Programme management well in Paktika compared to many other Staff at management level only were inter- provinces”, because of the immense interest viewed. shown by the people and their support. 3.1.1 Role of FP The OC felt there were no serious problems The FP described its role as a bridge-builder apart from: a) it takes two months to reach or facilitator between the NSP funds and the people from the time of “disbursement community. It was stated that the MRRD statement” and b) people take a long time owned the programme. to understand the programme and its dividends due to the low level of education. The respondents added that in the beginning the people associated the NSP with the FP only. With the start of the OC, 2.2 The capacity-building role the people then understood that the of the OC DRRD/Government of Afghanistan was the The OC described its role as ensuring coor- main player. dination and cooperation among the actors involved and providing advice. Therefore, ACKU3.1.2 Working relations with the DRRD/OC their role did not entail management. The FP thought the DRRD was very cooperative and supportive. Working relations with Regarding the capacity of the DRRD, the OC the DRRD were described as very good and felt that they did not have enough profes- they had been able to solve any problems sional staff to run the programme inde- arising together as a team. They believed pendently but hoped this would develop in the decision-making process was participa- a few years. tory.

The OC argued that steps were taken to 3.1.3 Capacity of DRRD develop individual capacities in the form of The FP felt that the DRRD had stretched training, which contributed directly to itself too much and therefore did not pay developing institutional capacity. They also enough attention to the NSP. They stated thought there was a learning process. that there was a degree of ignorance about the NSP in the DRRD and there was insufficient staff. Therefore, it was proposed that 2.3 The supervisory role of the OC the DRRD needed to increase its staff in THE PROVINCIAL The OC felt the criteria was strictly applied order to meet the work requirements. FIELD SURVEY REPORTS

308 Accordingly, it was recommended that ori- cerning participation at the start of the entation on the NSP should be provided to programme (2003) as “some people all (especially new) staff of the DRRD. thought it was an American trick to trap them”. Also, the FP noted that people were 3.1.4 Programme structure and relations not ready to register the names of women between communities and government for the programme. It was claimed that the The FP felt that it was usually difficult for situation had completely changed, as people to understand the different roles of people were not only willing to register the actors since the level of education was women’s names but also increased their very low in the province and people became contribution to the projects. confused. Furthermore, it was stated that even some of the government officials, 3.1.7 FP’s capability in relation to intellectuals and educated people either the programme demands found it difficult or did not understand the BRAC claimed to have no problems related different roles. They stated that even the to the number or projects since they had Governor of Paktika knew little about the enough staff (28) and the CDCs were well in NSP. control of their work.

Nevertheless, the FP believed that the They faced no problems applying the eligi- people trusted and valued the government bility criteria since orientation on the since it was helping them: the NSP had eligible projects was provided after the enhanced contact but this took time. The FP formation of the CDCs. Therefore, it was claimed to have also made the govern- claimed that people restricted their ment’s presence more visible. For example, proposals to the criteria. However, BRAC they invited government representatives to had noted some problems in the first year of the CDC elections. However, it was asserted the NSP as many people asked to build that there was still not enough contact mosques. between the government and the community, nor was this institutionalized in One hundred and ten staff were allocated to the NSP since there was no specific the NSP by BRAC including engineers, social mechanism to strengthen the linkage mobilizers, and service staff etc. There were between the government and the 10 women among the staff. community. They thought that the government should have a monitoring role within The main project skills needed were the district level administration. community mobilization, effective communication and monitoring. BRAC noted that a 3.1.5 Views on the impact and future lack of professional staff in accounting and of NSP and the CDC documentation limits effectiveness. In preparation for the termination of the NSP, BRAC was thinking of encouraging 3.1.8 Staff capacity-building and training people to start some income generation or The FP staff claimed to have received orien- self-run schemes in order to create sustain- tation on the Operational Manual. They able livelihoods. BRAC’s future presence in had also received training on accounting, PaktikaACKU would be at the policy level. Security procurement procedures, engineering and would determine if other projects would be the technical manual. All of the training was implemented in the province. held to be useful.

3.1.6 Training and capacity-building in the communities Regarding training for the CDCs, the FP 4. The CDCs claimed to have provided orientation frequently; for example, training on accounting, procurement procedures, leadership, 4.1 Sapawol Village, Sharan District development and literacy. There was also project-specific training on health and Meeting profile hygiene for hand pump projects, and sheep The Name of CDC: Sapawol rearing. Other activities included exposure – Community Development Council visits and debate programmes between the Village and District: Sharan CDCs and community leaders on the NSP. Interviewees: Chairperson, ANNEX A11: Vice Chairperson, and Member PAKTIKA PROVINCE It was stated that there were problems con- Venue: A house in Sharan

309 4.1.1 Community profile The projects took up 30 per cent of the There were 226 families in the village, which community’s daily time: involving meetings, was one of the poorest in the city. There overseeing the work in progress, talking to were not many signs of aid support to the the FP, OC and RRD. community other than the paved road and water hand-pumps which were provided by The water well (with a hand pump) had the NSP. really helped them fight against the acute shortage of clean drinking water in the 4.1.2 Legitimacy and acceptance of the CDC community. It meant that they no longer The community was governed by a had to travel miles to get drinking water and community of 6 elders (shura). It was their children no longer had to suffer. claimed that they met every 15 days and discussed the village issues. Most of the The community group had not considered time they were involved in social issues, for arrangements to maintain the facility/ example, conflict resolution. activity when the project funding ended

The community got involved with the NSP The CDC and the shura took turns to after BRAC informed them about the monitor the implementation of the project. programme. They then sent people to explain the government’s plan to help com- At the time of research, the CDC was only munities develop a shura to facilitate dealing with NSP-related issues and did not support to the community. intervene in other issues since these were typically handled by shura. The CDC had changed the way the community was governed since it now had a 4.1.5 Relationship between budget and could provide services. These the CDC and government were two important differences compared The CDC claimed to be in constant contact to the traditional shura. Moreover, it was with the governor and had visited and felt that the CDC complemented the tradi- talked with him twice about their work. tional form of governance through freedom They also pointed to regular contact with of speech and co-ordination. the DRRD, which had visited the community. The CDC thought the partner- 4.1.3 Functioning of the CDC ship with the government was good and in relation to the whole community important. Towards improvement, more The CDC claimed 10 elected members. regular co-operation was recommended. Activities were documented by simply They had never needed to use the NSP com- writing down their decisions and these are plaints procedure. referred to the FP or OC where relevant. 4.1.6 Relationship between In planning the project, the CDC decided the CDC and the FP the priorities in its meeting based on its The CDC believed that BRAC had played a expertise in the issues affecting the central role in the process by providing community. It was concluded that they essential information on the aims and objec- needed a road and also clean water. ACKUtives of the NSP, facilitating the CDC elections and contact with the RRD and OC. The community group noted that there The two days of training for procurement were no disagreements over the priorities were considered to be really useful. Other because the community all shared the same support included advice on implementa- ideas, and decisions were reached through tion. discussion and based on consensus. 4.1.7 The capacity of the CDC 4.1.4 Projects The CDC claimed to have experienced no The first project was road paving and they problems implementing the projects. also had projects for water pumps etc. They However, aspects of democratic governance claimed that these projects were decided and community leadership are still unre- after using the training on organizing a fair solved. decision-making process. The projects were implemented by local contractors in the city. Meeting profile It was claimed that the CDC oversaw the The Name of CDC: Loy Jomat CDC work and had sometimes asked them to Village and District: Sarawza, Sarawza THE PROVINCIAL redo the work where there were faults and Interviewee/s: Mohammad Ghaus FIELD SURVEY REPORTS after consulting the OC engineer.

310 (Chairperson) and some members of the good accounting mechanism, and looking CDC after livestock. The FP had also provided Venue: A house in Sarawza radios to listen to the NSP publicity. Project: Improvement to water canal in village 8.1.5 The capacity of the CDC In the past, the leaders had implemented the projects but they claimed that they now 8.1 Sarawza village, Sarawza District contracted-out the project. Benefits from the construction of the improved canaliza- 8.1.1 Legitimacy and acceptance of the CDC tion system included less mosquitoes, The community had khans and maliks which in turn reduced the risk of transfer- which led the community in addition to a able diseases. There were no problems district council. The latter was described as noted during the implementation of the ineffective and not functioning properly. project.

The community got involved with the NSP The group could not answer the questions when the FP came, as their district was des- concerning: arrangements for maintaining ignated for intervention. the facility/activity when the project funding ended; the mechanisms for monitoring There was no response to the question that implementation; the assessment of the the CDC had changed the way the benefits; and pre-project skills in the community was governed community.

It was claimed that the CDC replaced the district council since it was almost paralysed.

8.1.2 Functioning of the CDC in relation to the whole community The CDC functioned by meeting and discussing the main issues and then making decisions. There were 9 elected and active members. The CDC failed to produce proof of documented activities. The CDC claimed to have planned the project and formed the community’s priorities through a participatory method of decision-making. The group stated that they dealt with different opinions by respecting the vote of the majority.

8.1.3 Relationship between the CDC and government The groupACKU claimed that the district administration office was very close and were informed of all developments. They considered the partnership with the government to be good and very important. Improvements would stem from mutual respect, provision of services and reconstruction efforts by the government. They were aware of the NSP complaints procedure but had not used it.

8.1.4 Relationship between the CDC and the FP The CDC was satisfied with the work of the FP, which had provided “invaluable guidance” and cooperation. They assessed ANNEX A11: the training to be good; for example, the PAKTIKA PROVINCE orientation on NSP, procurement, creating a

311 ACKU

THE PROVINCIAL FIELD SURVEY REPORTS

312 A12 Takhar Province Provincial Field Research Findings

1.Timing and scope of the research 2.2 Experience of community development with the NSP The research team from Kundoz1 worked in The Director thought the NSP is a good Takhar from 9–15 November 2005 and programme and has been very well received completed a rapid partial survey. The by the public. However, he felt that the Director of DRRD and the OC were inter- DRRD’s role had been reduced to a mere viewed but not the NSP staff. CDC represen- formality, as the programme is carried by tatives were interviewed but no household- the other actors. At the same time, expecta- ers. No matched non-NSP community was tions have been raised in the communities visited. Only FP district staff responsible for that have not been fulfilled and they expect the CDC visited were interviewed. the DRRD, as one of the more important government departments at the provincial Persons interviewed level, to respond. Their ability to do so is Provincial Director of DRRD severely limited by lack of resources. OC team leader in Takhar Province CONCERN (FP) staff working in Versage District: 2.3 Training and capacity of the DRRD Four Community Development NSP training was restricted to two staff who Officers were allocated to work with the OC. The Finance Officer Director had no knowledge of how useful Members of Dar-e-Hawili CDC, the training may have been to them. As Versage District already mentioned, the DRRD has insuffi- Members of Sar-e-Tang CDC, cient staff and resources to play a full role in Versage District. the NSP. They have to trust the OC and sign ACKUall the project proposals vetted by him without being able to make complete checks. 2. The DRRD at the provincial and district level 2.3.1 Constraints due to the NSP structure/procedures/workload The Director of the DRRD was interviewed The Director believed that the operational in the department office in Talqan. problems in what is otherwise a good programme are due to the number of actors involved and their poor coordination. The 2.1 Takhar DRRD OC operates as a separate body from the 1 Mirwais Wardak (Team The DRRD has only 28 staff and resources DRRD so, for example, DRRD was not Leader) with Samiullah Nazemi are very limited. The Community-led involved in deciding which districts to prior- and Kushal Akhtar. Development Department was set up at the itize for inclusion in the programme, and time of the creation of the MRRD. Apart has nothing it can offer to representatives from the NSP, the DRRD has six other pro- who come and ask for the NSP in their grammes including micro-credit, emerg- districts. ency response to natural disasters, NEAP and WATSAN.

313 Meanwhile, the FPs tend to take the credit facilitation was not achieving this outcome. for the NSP without making clear that it is a As regards national solidarity, after 25 years government programme, including putting of war that will not be easy. Money itself will their signs on the projects. At the same time not achieve it. The important thing is how some have other programmes in the area to the money is spent; once that has been which they give greater priority, to the evaluated it will be possible to say if it has neglect of NSP. The best criteria for judging brought solidarity. the success of an FP would be if they honestly work towards the goal of the programme, which is that people in the most remote areas of the country should 3. The Provincial NSP feel the presence of the government. Oversight Consultant (OC) However, they ignore these concerns and, rather than coordinating with the DRRD, The Oversight Consultant was interviewed they sideline them. on his own.

They also have no information about the terms of the contract between the FPs and 3.1 General comments on the the NSP main office; for example, the strengths and weaknesses of the NSP number of staff they are supposed to The OC thought that in general the employ on the NSP. programme is doing well. Strengths of the programme are that it reaches the most He concluded that either coordination has remote communities (some CDC represen- to be improved or the number of actors tatives have never been to the provincial reduced. His preference seemed to be to centre, Talqan). It therefore increases cut out the FP and OC, with their high awareness and also builds capacity through operating costs, and strengthen the capacity direct involvement in the whole process, for of the DRRD to work directly with the CDC. example in planning projects and using the local banking system to access the money, If the programme achieves the intended both new experiences. levels of community participation, the main responsibility for project implementation He identified a number of operational will be assumed by the CDCs and in this problems in the local NSP management. case there will not be a problem of overload First that monitoring is inadequate, both for the administration of the programme by because there are too few staff (the two NSP the DRRD. [DRRD] monitors have to cover more than 347 projects) and because their knowledge 2.3.2 Coordination with other ministries and skills need to be enhanced. A second The Director said they did not have any problem is that the FPs do not have enough problems in coordinating with the relevant staff, especially technical staff and women, ministries for the implementation of the to ensure the quality of the work and projects. promote women’s participation.

2.3.3 Community relations ACKUThis situation is difficult to tackle when NSP had created an opportunity to enhance there is no transparency about the FPs’ the contact between the people and the contracts. Neither the OC nor the DRRD government. DRRD NSP staff and the OC knows what the FP is contracted to deliver make regular visits to the communities to in terms of staffing and performance. They discuss issues related to the programme. have been told that the contracts are confi- The department has also decided to invite dential between the FPs and the World Bank the heads of CDC to a meeting to ensure who contracts them. However, this makes it they know that NSP is a government-funded difficult to monitor them and hold them programme, that it is MRRD not the FP that accountable. owns it. It will also give them a chance to raise any problems they have. As regards central management, there is an unwillingness to delegate authority, and inputs from operational staff are largely 2.4 The role and impact of NSP/CDC ignored in a top-down complex administra- The Director was unsure of the long-term tive and decision-making process. viability of the CDC independent of the FP THE PROVINCIAL and OC. He seemed to suggest that the FP’s FIELD SURVEY REPORTS

314 3.2 The role of the OC 4. The Facilitating Partner The OC saw his main role as coordinating and monitoring the whole process, as well Only members of the district staff of as administrating the grant. CONCERN were interviewed.

He also said that they had included capacity- building as an important element of the 4.1 The role of FP programme. They had developed a staff The staff described their role as facilitative, evaluation form on the basis of which they trying to enable the community to do all the defined training needs and organised project work themselves. They thought the workshops for OC and NSP (i.e. DRRD) community understood this and learnt from staff. the staff’s practical role. In addition they thought their awareness was raised by NSP 3.2.1 The capacity of the DRRD publications, media and informal discus- While the capacity of the DRRD is sions. This confirms the accounts from the improving, the staff are not professionally CDC that they had very little formal training qualified. The two NSP staff are supposed to and, since they were largely illiterate (and work as a general project monitor and an therefore unable to read the literature), engineer to assess technical standards, but explains their lack of awareness about the it is difficult for them to do this well and also NSP. difficult for the OC to build their capacity. It is noticeable that the FP staff made no He felt that there was little learning on the mention at this point of government. This, part of the government staff, because they and the evidence from the CDC, confirms did not take the training opportunities the DRRD director’s complaint that the FPs seriously. He implied that this attitude are not adequately representing the NSP as emanated from the Director (clearly, see the a government programme. Later when Director’s comments above, the relation- asked directly they said ‘Before they get the ship between OC and DRRD is not satisfac- project they are fully educated about the tory). various roles of FP, government and CDC.’

When asked if it would be possible to It also seems clear that they saw the transfer the programme management to the programme as essentially about enabling DRRD within the proposed timeframe, he communities to run projects. They made no said, ‘Not at all’. mention at any point of the CDC as a form of democratic governance or of the facilitation process for setting it up. 3.3 The supervisory role of the OC Describing key aspects of the oversight 4.1.1 Working relations process, he said there were almost no with the DRRD and OC problems in getting the communities to They defined their relations with the DRRD understand and comply with the eligibility as good because they always participate in criteria. the opening of projects, but seemed to be ACKUunaware of any other input. They appeared Delivering the grant through the local to have more contact with the district banking system had some problems. While administration who are asked to resolve on- NSP and the OC fulfil their part, the banks site problems and observe the elections. delay paying the CDC even though they have the money. They said they are cooperating with the OC and relations are ‘smooth’. There are in fact two reasons for delays in payment to the CDC. The problem with the 4.1.2 Capacity of DRRD banks is one. The other is the disbursement When asked about the capacity of the DRRD of the money in instalments. They apply they said they could not assess it because after using 80 per cent of the first, but they came from the provincial capital to quickly spend the final 20 per cent and have monitor the project, and they had never to stop working while they wait for the next worked with them to be able to judge how to arrive. capable they are. It seems that the infre- quent visits of both DRRD and the FP do not ANNEX A12: coincide. TAKHAR PROVINCE

315 4.1.3 The impact of NSP on relations reduction in the frequency of visits to the between communities and government CDC. Previously 8 staff were responsible for NSP has increased the contact between the 18 CDC (this is already a low cover communities and the district administra- compared to other FP) but now it is a ratio tion, mainly through participation in of 3 to 24. As a result CDC may not receive opening and closing ceremonies. They are a visit for up to two months. also contacted to help the FP and CDC resolve conflicts on the project sites and to Staff capacity-building and training observe elections. They had received training in finance, procurement, community mobilization and 4.1.4 Training and capacity-building maintenance of the projects, all of which in the communities was necessary and effective as far as it went. The FP has organized workshops that they However, they felt they needed technical considered necessary for the NSP projects: training to be able to deal with the engi- finance, procurement, documentation and neering aspects of the projects (the teams at ‘CDC responsibility’. They said the finance district level include no engineers). They and CDC responsibility workshops were for are frequently faced with issues at the 4 days each and the others two days. They community project implementation level also had carried out follow-up sessions with that they are unable to answer. those CDC that took longer to assimilate the necessary skills. Their assessment was that ‘almost all the training’ was successful (this 4.3 Project relevance, sustainability account differs from that of the CDC; see and efficiency below). Relevance 4.1.5 Participation Referring to the project visited with the On the subject of impediments to participa- research team, they said relevance was tion, they said illiteracy was a major assured because the villagers had simply problem. In much of the district it was opted for reinitiating a hydro-electric difficult to find literate people to take on the project they had all agreed on and tried to project management, but they did not think implement before. Since all households will that this meant that an educated minority benefit and use the facility it is inclusive and used their advantage to exploit others or it was planned by the community with the hinder their participation in the project. help of the FP.

Participation of women They claimed that environmental factors They did not mention the participation of had been taken into account and there was women. no particular issue of integration with national development plans. Nevertheless 4.1.6 The FP’s capability in relation to the district administration had been the programme demands involved in selecting the site to avoid any The FP had had to increase the staff and future conflict. their capacity to take on the NSP. Those interviewed had been recruited and had ACKUSustainability been given relevant training because they The quality of the construction and its con- had no previous experience of working with formity with the standard design was the FP. They had no idea what might happen assured by frequent visits by the FP, OC and to their employment after the end of the the head of CDC to the site. NSP projects. Two people had been trained to maintain and operate the facility. At the moment they 4.2 Management at are being paid out of the project budget. district and project level They said that in the long term the The staff described difficulties they were community would be responsible for paying experiencing in ensuring that the projects for this from the income raised (through were properly implemented. While there charges). This would cover not only the was no difficulty in explaining and applying routine maintenance by the two villagers, the eligibility criteria in the selection of the but buying in technical help for major projects, the high number of projects has repairs. meant both a reduction in the number of THE PROVINCIAL staff working with each CDC and a For these reasons, and the fact that the FP FIELD SURVEY REPORTS

316 could be recalled to fix any problems, they The two problems identified in the FP’s per- thought it would be sustainable in the long- formance by the other two partners, and term. corroborated by the interviews with CDC, are the staff shortages discussed above and Efficiency and effectiveness the fact that they do not present the NSP as This particular project took 3 months from a government programme to the communi- identification to the start, and 7 months ties. from the start to completion. However, delays do occur both in proposal approval Though the FP staff seem to have good and transfer of funds, although these have relations with the communities, they have decreased. little understanding of the governance objectives of NSP. So, for example, they see Since those interviewed were CDOs, they no need to involve the DRRD but rely could not comment on efficiency and effec- instead on contacts with the district admin- tiveness related to the technical aspects of istration, which both communities visited design and construction. suggested is less than honest. They appear to be simply running the NSP like their other projects, that is concentrating on the sub-project implementation (with some 5. General comments on the success) but giving little attention to devel- management of NSP in Takhar oping community governance. As a result the communities continue to be run by non- Both the DRRD and OC were positive about elected elites. The FP’s lack of staff has also the NSP concept and thought it had resulted, at least in the two communities achieved benefits in terms of community visited, in spending less time on capacity- development, and improved contacts building of the CDC than even their own between government and communities. guidelines require, so that only the already However, they both thought the impact was able are equipped to run further projects less than it might have been due to poor without assistance. coordination and poor performance by the FP, and the evidence collected by the research team supports that view. The OC also felt frustrated by the lack of delegation 6. The two CDCs of decision-making by the central NSP.

There were clearly communication and 6.1 Dar-e-Hawili CDC, coordination problems between the DRRD, Versage District OC and FP. As both the director of DRRD The research team interviewed the head, and the OC suggested, this is largely a treasurer and two members of the Dar-e- question of capacity. The DRRD is even Hawili CDC with the head of the CDC in more short staffed than most and the two Papani, the village with which they shared staff allocated to work with the OC have low the hydro-electric project (all men). levels of professional education. The FP is also seriouslyACKU understaffed in terms of 6.1.1 Community profile numbers and technical expertise (the (provided by the FP district staff) accounts of DRRD, OC and the FP’s district The village has 94 families and a population staff concur in this). of 564. The number of widows was put at two and disabled one. There were said to be These weaknesses are then exacerbated by 157 women, 132 men and 91 children lack of transparency and trust between the (totalling only 380). operational partners. The director of DRRD does not feel he has been sufficiently There were no displaced or refugee involved in decisions about implementation families. One family was classed as rich, 12 policy or informed about the training his of middle income, 37 as poor and 44 as very staff receive from the OC, though he fully poor. (It was not possible in the time accepted the department’s lack of capacity available to validate/clarify or supplement for direct implementation. The OC, for his this information with a household survey.) part, felt he had given quite a lot of priority to capacity-building but was not supported 6.1.2 Legitimacy and acceptance of the CDC ANNEX A12: by the DRRD. Neither is satisfied with the When asked who governs the community TAKHAR PROVINCE performance of the FP. and who are its leaders, the CDC represen-

317 tatives said that the elders and the Mullah however claim to be resolving some of the mosque decide community issues. community conflicts (the researchers Without consulting them as well as the thought these were mostly related to the people in the community, the CDC cannot NSP project). decide on village issues. Nevertheless they insisted that the CDC is the only form of 6.1.4 The project government in the village and did think the Apart from contracting an engineer, all the CDC had changed the way the community is work on the project had been done by the governed. The decisions of the CDC are community. There were no difficulties over respected in the community and there is the implementation. The CDC tried to give more transparency. a chance to all the community members to benefit from the paid labour. People worked The researchers observed that though the hard and paid their contributions to the 10 CDC claim to be the representatives of the per cent of costs. community and are the only formally constituted committee in the village, their The project was going to provide electricity operations and authority appear to be very to every household and will help them much confined to the NSP sub-project. They reduce expenditure on lighting, even taking are concerned with very little beyond into account the charges based on use project implementation and the handling of metered in every house. They thought it the finance. would also improve livelihoods in the long term but did not explain why. 6.1.3 The functioning of the CDC in relation to the whole community They had calculated that the project would The CDC has 8 members: 4 men and four generate Afs 12000 a month, which would women. The men’s and women’s sections cover the cost of hiring the operator and meet separately and function as two providing a fund to pay for major repairs. separate CDCs. In the men’s CDC they said The project implementation had been they ask other villagers to participate and monitored by the head of the CDC and a they think it is working well. supervisor, and the FP had also monitored it. However, the researchers, as noted above, thought that few matters not directly related Although this project was nearing comple- to the NSP project were dealt with. They tion, they had no plans for any new project. also concluded that the women’s CDC was ‘not very visible’ and had no influence in the 6.1.5 Relationship between decisions made by their male counterparts the CDC and government (most of which relate to the expenditure of Relations between the CDC and the district the Block Grant on a large infrastructure administration, which is the only part of project). government they are aware of, are formal but not cordial, ‘Our responsibility is to The decision-making process over the pri- make them guests and theirs to give orders.’ orities for spending the NSP grant were said They did not find it helpful, blaming it for to be straightforward. The existing hydro ACKUexcessive corruption and nepotism. project was no longer working so ‘most of the villagers’ saw the NSP as an opportunity They had little knowledge of other levels of to reconstruct it, and agreed to negotiate government, and did not associate the with Papani village and CDC for a joint MRRD role in the NSP with government. scheme. When asked how they had handled differences of opinion over this as a priority, They had no knowledge of any complaints they said that didn’t arise because ‘most of procedure but said the first complaint was the villagers agreed unanimously’. that they were not paid for their work for the CDC. All the documentation required in the NSP Operational Manual was present but it was 6.1.6 Relationship between clear to the researchers (given the level of the CDC and the FP illiteracy) that this work had been done with It was the FP that approached the village the help of the FP. It was not clear what about NSP. They then started working arrangements the CDC had for briefing the together and the FP had been able to facili- largely illiterate population about their tate what they wanted (the hydro project). THE PROVINCIAL decisions and accounting. They did FIELD SURVEY REPORTS

318 When asked about the training they had They clearly did not see the CDC as much received, they did not immediately under- more than a project management stand what was meant. It appears that they committee, and in fact it seems to have had mainly been briefed informally in simply replaced a pre-existing committee meetings and discussions. They did not set up by the FP for a previous project. One mention formal training. They said it had all respondent not only identified the earlier been useful and necessary for implementing committee as the ‘CDC for irrigation’ but the project but, as the researchers the NSP CDC as ‘the CDC for the chicken observed, it has not equipped them to keep farm’. the records and accounts for themselves. Having said that, the NSP CDC has intro- They could not think of any other support duced some significant changes: access and they had received from the FP (there was no responsibility for the management of mention of the elections or democratic resources; greater participation. Also, when functions of the CDC for example). asked if the CDC complemented the activities of other forms of governance, they did 6.1.7 The capacity of the CDC say the CDC is the sole form of government. It was difficult to assess the capacity of the The leadership of the elders, as in Dar-e- CDC on the basis of this interview, though Hawili, though powerful, appears to be a the deficits were clear. The CDC has not non-formal institution. assumed the leadership of the community, though its management of the project 6.2.3 The functioning of the CDC appears to have general acceptance and its in relation to the whole community implementation has mobilized community The CDC has 11 elected and active participation. Nevertheless, CDC members members. Several are also educated, so they seem to have little understanding of its have been able to complete all the docu- democratic and representative functions mentation and keep adequate accounts. and the women members are excluded They described their approach to working from decision-making. with the community as consulting the community ‘on the issues that need to be As regards project management capacity, it decided by the CDC’. So for the project, the is by no means certain that they could plan villagers came together and identified their and implement a completely new project needs and the CDC decided on the project, without the assistance of the FP, and they made the project proposal and submitted it have not acquired the necessary skills for to the FP. They said that there were no big documentation and accounting, though differences of opinion on the needs so they they may well be able to manage funds. did not need to sit with the community and discuss it further. On balance this was a CDC that would not be able to function as the Operational The researchers noted very little evidence Manual stipulates. It requires not just more of women’s participation, as was to be facilitation but a better quality of facilitation expected in this social context. especially for governance which appears to have beenACKU largely lacking. 6.2.4 The projects The CDC had planned three projects. The first, road construction, had been 6.2 Sar-e-Tang CDC, Versage District completed by the whole community. The The research team interviewed the head second, a chicken farm, was ongoing and and secretary of the CDC and a community had been contracted to a villager, and the elder. third was to buy a diesel generator, extend the electric lines and connect all house- 6.2.1 Community profile holds. The villagers had wanted a micro- No community profile was provided by the hydro scheme for electricity, but they had FP for this community. been advised by the engineer who inspected the site that it was not feasible. 6.2.2 Legitimacy and acceptance of the CDC The respondents said that the community is When implementing the first project they governed by the elders, some of whom are had tried to give everyone a chance to in the CDC (the 3 CDC representatives benefit from the paid labour, and the ANNEX A12: interviewed were: a teacher, a Mullah and community provided all the labour and 10 TAKHAR PROVINCE an elder). per cent of the cost. The road has had

319 immediate benefits in terms of easier travel community development strategy. They and the electricity will benefit everyone. The already had some of this knowledge before idea of the chicken farm is to generate funds they joined NSP, but it has allowed them to to meet other community needs. In the develop this existing expertise. long term it is hoped that the projects will contribute to the livelihoods of the villagers. Without a household survey it is difficult to assess the gains in democratic governance. The road and the diesel generator are to be However, the CDC themselves and the FP maintained by the villagers. The running of made no mention of it, and the indications the chicken farm has not yet been decided are that the nature of governance has not but it is likely to be contracted to a villager changed much. It continues to be paternal- with the necessary experience. istic and potentially nepotistic. The representative role of the CDC is restricted within The projects are monitored by the FP, which the community, since leadership remains they rely on for the technical knowledge, with the elders, and externally due to the and the CDC make frequent monitoring poor relations with district administration. visits themselves. On this basis the CDC cannot be said to be fully capable according to the NSP criteria. 6.2.5 Relationship between the CDC and government The CDC members were very reticent in their discussion of their relations with government. As in Dar-e-Hawili, government for them is the district administration and they have no clear awareness that NSP is a government programme.

They have very little contact with the district administration. The relationship is distant and described as ‘good enough’. However, they did say it could be improved by bringing more accountable and transparent staff into the public administration.

They were unaware of the NSP complaints procedure.

6.2.6 Relationship between the CDC and the FP As mentioned above, the community had worked with the FP before on an irrigation project. It was one of the elders, who had been head of the previous project committee, who approached the FP to ask ACKU them to set up an NSP CDC. He was the head of the CDC at first but now works in the district administration.

The researchers observed that the relationship was good in terms of mutual cooperation but the FP seemed to have little time to work with the CDC and, as in Dar-e-Hawili, they mostly worked through informal visits and practical project implementation. The CDC said they had had training in finance and procurement that was useful, but nothing else.

6.2.7 The capacity of the CDC The CDC is clearly able to plan and manage THE PROVINCIAL individual projects but also has a grasp of FIELD SURVEY REPORTS

320 B1 Terms of Reference for the Evaluation of the NSP, Afghanistan

Introduction rural communities to social and productive infrastructure and services. In 2002, after nearly 25 years of conflict, there is a profound need for extensive intervention to address rehabilitation and development needs in the rural areas of Implementation strategy and plan Afghanistan. The transitional administration of the country further recognized that The design of NSP consists of four core acceptance by the rural population elements: depended in no small measure on its ability Facilitation at the community level to to deliver long-awaited assistance to rural assist communities establish inclusive communities across the country. community institutions through elections, reach consensus on priorities The National Solidarity Programme (NSP) is and corresponding sub-project activities, built on the operational partnership develop eligible sub-proposals that between local and international NGOs and comply with NSP appraisal criteria, the Government that was started under the and implement approved project NSP component of the Emergency sub-proposals; Community Empowerment & Public Works A system of direct Block Grant Project of IDA. It is envisioned that this part- transfers to support rehabilitation or nership will enable the Afghan Government development activities (sub-projects) to develop its National Community Driven planned and implemented by the Development programme framework elected Community Development further, while drawing on the strength and Councils; experienceACKU of NGOs for programme facilita- A series of capacity-building activities tion. to enhance the competence of Community Development Council members (both men and women) for financial management, procurement, Programme goal and objectives technical skills, and transparency; and Activities linking local institutions to The goal of the NSP is to reduce poverty government administration and aid through empowering communities with agencies with available services and regard to improved governance, and social, resources. human, and economic capital. Quality of process is essential for the long- The objectives of the programme are to: term sustainability of community invest- 1. lay the foundations for a strengthening ments and for the success of a programme of community level governance, and to like the NSP. As such, community level 2. support community-managed sub- planning must follow an approach that projects comprising reconstruction and complies with the basic principles below: development that improve the access of

321 participatory planning of activities development of sub-project proposals, through inclusive community meetings and technical assistance for community- and representative elected development managed implementation of approved councils; project proposals; community contributions to capital undertaking capacity-building to costs and operation and maintenance; enhance the competence of the transparency and accountability of communities for financial management, budgeting and accounting. procurement, technical skills and transparency; The goal of this approach is to ensure that conducting monitoring and reporting. communities are able and inclined to institute a broad-based inclusive decision- The performance of the Facilitating Partners making system (which includes women as has been evaluated in June and July of 2004, well as members from marginalized sections prior to entering into the second round of of the villages) through community contracts for NSP year II. meetings and development councils. Through this process the communities will This evaluation identified a potential for acquire or strengthen the skills and ‘programme leakage’ or dilution of effort, as attitudes necessary to enhance their communication is delivered between the capacity to define, manage and govern their various actors of the programme (see development. To achieve this goal, the role diagram on following page). This study of the Facilitating Partners (FPs) and the referred to these articulations in order to NSP will be to create an enabling environ- separate internal problems specific to the ment through facilitation of inclusive facilitating partners and their management community planning, technical assistance, structures from externalities that lay beyond and timely release of funds, which will the control of the FP. enable communities themselves to manage implementation of the projects they have The Evaluation Consultant will be required defined. to take full account of the FP evaluation study, and assess the pertinence of the information gathered in the field and the analysis and recommendations made by the FP Role and responsibility Evaluation Consultant, for the present of the Facilitating Partners programme evaluation.

The FP serve as the operational outreach to facilitate community participation in the planning, implementation and management Role of the Oversight Consultant of sub-projects financed by the NSP Block Grants. The Oversight Consultant is responsible to MRRD for the overall management and The FP provide the foundation of experi- supervision of the NSP. ence that is used to transfer technical knowledge and management capacity to the ACKUThe NSP Oversight Consultant has staff at community level. How they do this – the the central level, in five regional offices, and level and quality of participation engen- in all provincial level MRRD offices. The dered, equity assured, gender outreach and Oversight Consultant is placed in MRRD and sustainable practices extended – will ulti- works with MRRD counterparts in the mately determine the impact of NSP and Community-Led Development Department whether the programme achieves a long- to strengthen capacity for community term strengthening of local governance as development and programme management well as sustainable sub-projects. The NSP at central and provincial levels. Operational Manual describes their responsibilities as: The key tasks of the Oversight Consultant are: facilitation at the community level appraisal of community project regarding election of inclusive proposals; Community Development Councils, management of the NSP Block Grants development of Community for community projects (including Development Plans defining priorities effecting fund transfers, tranche NSP AFGHANISTAN and corresponding project activities, payments, financial management, Mid-term EVALUATION REPORT accounting, and reporting);

322 supervision of the performance of the NSP through ARTF with a total of US $45 Facilitating Partners; million, and Denmark is directly co- planning and conducting training financing the programme with US $7.7 for staff of MRRD and Facilitating million. Including a proposed JSDF funded Partners (either directly or through project, the NSP has funding of US $180.7 sub-contracting), together with regular million, which is expected to cover expendi- workshops to exchange lessons tures until June 2005. learned and adjust the programme implementation approach as required; The NSP target for the first year of imple- undertaking technical and financial mentation (August 2003 to July 2004) is monitoring, and producing consolidated about 5,500 communities in 3 selected progress reports, and districts per province. As of 31 May 2004, management of an information and the programme was under implementation communication campaign on NSP. in 101 districts in all of Afghanistan’s provinces:

Communities with Role of the Ministry of Rehabilitation ongoing social mobilization 5,414 and Rural Development Community Development The NSP is implemented by MRRD. As a Councils elected 4,600 result of more than two decades of conflict, Community Development exodus of trained personnel, low pay, and Plans completed 3,410 lack of exposure to new approaches, the government’s institutional capacity is Community sub-projects generally weak. To address this issue, approved 1,425 MRRD’s leadership has instituted a compre- Disbursements to hensive reform within the Ministry. The sub-projects (US $ million) 11.5 mandate, principles, policies and objectives of MRRD have been revised, with Commitments to community empowerment at the core of sub-projects (US $ million) 23 the Ministry’s work to ensure that communities have both the authority and capacity to own decisions over their reconstruction It is expected that the programme will and development. expand to reach about 10–11,000 communities in Year 2 of field implementation MRRD’s reformed mandate is policy and (August 2004 – July 2005). strategy formulation, programme coordination, programme and project execution (involving implementation through contracting partners - NGOs, UN and private Mid-term evaluation sector), monitoring and supervision, and information dissemination. The NSP and The purpose of these Terms of Reference is other ACKUnational priority programmes to outline the key areas for an evaluation of managed by MRRD reinforce the the National Solidarity Programme after 18 Government’s policy and regulatory role to months of field operation: its implementa- support the private sector through compet- tion (efficiency and effectiveness), early itive contracting. impact, rationale and long term strategy.

Current Funding and Implementation Status (i) Implementation The NSP received initial funding from an The evaluation will focus on the following IDA Grant of US $22 million through the aspects of the Programme implementation: community empowerment component of the Emergency Community Empowerment Efficiency & Public Works Project, and an IDA follow- The resources mobilized to deliver the up grant of US $95 million – the Emergency nationwide programme are considerable in National Solidarity Project – became terms of expertise, training, staffing and effective on 5 April 2004. In addition, com- personnel, as well as equipment and ANNEX B1: mitments have been made by several physical installations. The programme TERMS OF REFERENCE donors (UK, USA, Canada, EC) to co-finance delivery mechanism consists of Facilitating

323 Partners, an Oversight Consultancy charged strategy required to incorporate relevant with the overall management of NSP, and institutional functions of NSP in the ministry personnel mobilized in support of structure and work plan of the MRRD. The the programme. expediency of employing the Facilitating Partners and Oversight Consultants must be A constant concern for MRRD is that these evaluated in the light of the Ministry’s long- resources are being used in the most term institutional development plan. The efficient manner to achieve programme exit strategy proposed by the Oversight results. Consultant should be assessed, as well as the role of the Facilitating Partners, within Effectiveness the context of future rural development in The degree to which the programme Afghanistan. resources deliver tangible and measurable results in all the rural areas of Afghanistan reflects the effectiveness of NSP. Communities have been mobilized and Scope of services supported in the election of Community Development Councils (CDC), in the prepa- Based on these elements, the Evaluation ration of Community Development Plans Consultant will evaluate: (CDP), and in the design and implementa- the resources used to deliver NSP in tion of sub-projects. terms of the appropriateness of both resource quality and quantity, and in Has the programme delivered sufficient terms of timeliness of delivery; training, technical support and funding to the progress of NSP in delivering outputs rural communities and their CDC to allow and contributing to tangible results in for a recognizable presence in the country? most provinces in the country; Could these results have been delivered in the institutional arrangements in terms any other, less costly, way? of their effectiveness to deliver the programme across the country and build capacity with the Afghan (ii) Impact Government; The impact of the NSP will be measurable in the potential impact of NSP on 4 to 5 years; however it will be possible to improved local governance and arrive at some indication of the impacts that poverty reduction: assessing the might be expected after one and a half appropriateness of the NSP approach years. The impacts in terms of the two for achieving the programme objectives; project objectives, namely: improvement of the involvement of women in local governance through inclusive community elections, decision-making community based institutions, and on the use of Block Grant funds, improved community access to social and and as beneficiaries of Block Grant productive infrastructure and services investments; leading to a reduction of poverty within NSP the impact of the various types of communities, must be assessed to ensure sub-project on the incidence of that the programme is able to contribute to ACKUenvironmental and social risks these outcomes. within the communities; the programme environment (socio-political and economic) and its (iii) Rationale implications for the rationale of the The NSP rationale was defined some two programme. years prior to this evaluation and it is important to ask whether socio-political and The consultant will report conclusions as to economic conditions have evolved over that the efficiency and effectiveness of the imple- period of time. While it is not expected that mentation of the NSP as well as to the the fundamental rationale of the potential impact, rationale and long-term programme would change, there may be strategy adopted at present. critical conditions that modify the manner in which the programme goal is addressed. The Consultant will also provide recommendations with respect to: 1. the programme approach and (iv) Long term Strategy. institutional arrangements to improve NSP AFGHANISTAN Given the temporary nature of pro- the delivery and impact of the Mid-term EVALUATION REPORT grammes, it is necessary to consider the programme;

324 2. the long-term strategy for the financial proposal, the financial proposal integration of relevant programme of the organization rated second for functions (e.g. M&E; community project quality of proposal will be opened, and oversight; design standardization) in the so on. institutional profile of the Ministry. MRRD will make available to short-listed consultants the following documentation to facilitate proposal development: Duration of Technical Annex (project document) assignment and reporting 1 for the second IDA Grant, NSP Operational Manual and NSP The assignment will take place during an 8- Technical Manual, month period and will involve two evalua- Quarterly Status Reports tion exercises. The first evaluation exercise is scheduled for March-April 2005, and the second 6 months after submission of the report of the first evaluation. The assign- Evaluation Consultant ment may be extended based on an assess- selection criteria ment of performance of the consultant. The proposals from short-listed consultants The timing of submission of draft and final will be assessed by a points system on the evaluation reports will be based on the following criteria (max 100 points): agreed time schedule for the assignment. Specific experience of the consultant related to the assignment 10 Proposals Adequacy of the proposed Proposals shall include: work plan and methodology 1. Organizational and staffing set-up in responding to the TOR 35 for the assignment, including the CVs for the proposed staff to occupy key Qualifications and competence positions in the evaluation team (e.g. of key staff for the assignment 50 team leader, institutional specialist, community development specialist, Local participation engineering specialist). (nationals among key staff) 5 2. Approach to the assignment including (i) analysis of key issues and challenges involved in the assignment (e.g. access to high security risk areas), and proposed solutions, (ii) proposed key indicators to measure achievement of NSP objectives (improved local governanceACKU and improved community access to social and productive infrastructure and services, leading to a reduction of poverty), (iii) sampling of communities to achieve representative data in terms of the programme scale and its geographical and ethnic variations, (iv) coverage of institutional implementation issues, and 1 This time frame was (v) time-bound implementation plan. superseded when it became 3. Financial proposals must be submitted clear that the evaluation in a separate sealed envelope. The could not commence before financial proposal will only be opened October 2005. for the agency rated highest for the quality of its proposal. If negotiations with that agency fail to result in a ANNEX B1: contract agreement within two weeks TERMS OF REFERENCE (14 calendar days) of opening of the

325 ACKU

NSP AFGHANISTAN Mid-term EVALUATION REPORT

326 C1 Stakeholders Consulted

NSP Oversight Consultants Team Assadullah Zamir, Economic Andreas Schild, Team leader Development and Financial Jovita Thomas, Deputy Team Leader Management Advisor, MRRD Abdul Rahman, Management M. Salim Qayum, Director of Assistance Programme Management Office Lyn Wan, Manager FP Windows Dept Anne Johnson, Manager FP Windows Dept Ministers and Junior Ministers were M. Isaaq Atmar, Training Coordinator consulted in the following Departments of Hanife Kurt, Training Co-Manager State: Humayun Ayubi, Senior Programme Agriculture Officer Education Ernst Bentzein, Regional Manger, Finance Eastern Region Rural Rehabilitation and M Hamayoon Akseer, Team Leader Development POC Laghman Water and Energy Arya Saboor, Technical Support Unit Women’s Affairs Leader Linda Hasse, Head of Block Grant and Finance National Area Based Lorane Flamins, M&E Development Programme Lene Petersen, Trainer Expert, Dept of Mizuho Yoko, Monitoring and HR and Training Reporting Advisor Christian Marks, Director Public Nazir Ahmed CommunicationsACKU Unit M, Haroon Chakhansuri, Head Information Coordination Unit AREU Yahya Haider, General Administration Hamish Nixon, Researcher Daud Omari, Researcher Palwasha Kakar, Research Officer, Ministry for Rural Rehabilitation Local Governance and Development HE Hanif Atmar, Minister for RRD Ehasan Zia, Deputy Minister for RRD Embassy of Canada Raz Mohammad, Deputy Minister Nipa Banerjee, Head of Aid (Finance) for RRD Tamin Asey, Senior Development Asif Rahimi, NSP Chief Coordinator Officer Sayed Abed Rekhtiya, Development Budget Officer, MRRD Saifullah Abid, Project Coordinator, European Union Ministry of Agriculture, Animal Martin Bezart Husbandry and Food/MRRD

327 Embassy of the Others Federal Republic of Germany Fasial Amin, Regional Project Chief Micro Kreibich, First Secretary, Engineer, Food and Agriculture Development Cooperation and Organization of the UN Economic Affairs Lother Dulbarg, Project Manager, SME Development, GTZ Embassy of Norway Horst Croessmann, German Agro Carsten Carlsen, Embassy of Norway Action, Nangarhar Karin Traenkner, German Agro Action, Nangarhar DfID Noel McCarthy, Site Security Essa Shamal, Deputy Programme Supervisor, UN Office for Project Manager Services, Nangarhar Anthea Kerr, Livelihoods Advisor Khalid Sharifi, Project Manager, Care of Afghan Families S Qutabuddin Roydar, Head of Field Japan International Operations, Joint Electoral Cooperation Agency Management Body Secretariat Makiko Watanabe, Assistant Resident Jawed Nader, Media Officer, Afghan Representative Civil Society Forum

IFRC FPs in Kabul Jamila Ibrohim, Head of Delegation, Graham Lowe, Chief Technical Advisor, IFRC UN-HABITAT Bijay Karmacharya, Project Advisor NSP, UN-HABITAT UNDP Raz Mohammad Dalili, Executive Nazir Ahmad, Deputy Programme Director, SDF Manager Sayed Ihsanullah Dileri, General Sitara Coordinator, SDF Mohammad Esehaq Zeerak, Director, GRSP USAID Khadim Nazari, Programme Manager, Barbara Rodey, Senior Advisor for GRSP Gender and Social Development, Aine Fay, Country Director, Concern USAID Paul Barker, Country Director, CARE Gerald Becker, USAID/DAI Alternative M Nader Taher, Rural Assistance Livelihoods Programme – Eastern Programme Manager, CARE Region, ex Team Leader NSP Michelle Kendall, Assistant Country Director, CARE Jagannath Kumar Dutta, DM&E UNHCR Advisor, CARE K Murata ACKU Shahjahan, Programme Manager, BRAC Sarder Jahangir Hossain, NSP Manager, BRAC World Bank Mohammed Fareed Waqfi, Acting Nihal Fernando, Senior Rural Director, CHA Development Specialist Adele Jones, Country Manager, AKDN Norman Picconni, Lead Rural Steve Mason, Programme Grant Development Specialist, Agriculture Manager, AKDN and Rural Development Sector, South Sachin Sacheva, Deputy National Asia Region Programme Coordinator, AKDN Mohammad Arif Rasuli, Environment Sultan Mahmood, Regional Community and Social Specialist, World Bank Development Manager, AKDN Matt Stephens, Social Development GB Adhikari, Country Director, Action Deborah Davis, NSP, Agriculture and Aid Rural Development Sector, South Asia Region NSP AFGHANISTAN Mid-term EVALUATION REPORT

328 MRRD/Donor Workshop Attendees Provincial Field Research 23rd February 2006 1 1. Asif Rahimi Badghis 2. Sofia Orrebrink, Programme Officer, The Provincial Director of DRRD Sida The DRRD Manager of NSP and a 3. Lars Olot Ellasson, Programme Officer, member of the monitoring team Sida The Provincial Head of OC 4. Najbullah Najib, Programme Officer, The Provincial Manager of BRAC World Food Programme The District Managers of BRAC Ab 5. Shrikant Deshpande, Governance Kamari and BRAC Jawand Officer, UNAMA The BRAC engineering team (Central 6. M Mekdi Jawari, Advisor, Ministry of Office Project Engineer, Provincial and Public Works District Engineers (7) and a monitoring 7. A Rahman Magood, Director of officer) Population Registration, Ministry of the Chairman and members of the Interior Mobarak Shah CDC 8. Kai Murata, Deputy Representative, Chairman and members of the Dai UNHCR Zangi CDC 9. Andreas Schild, NSP 9 householders (8 men and 1 woman) 10. M. Yassin Noory Wardak, Dutch in Mobarak Shah Embassy 8 householders (7 men and 1 woman) 11. Mohammad Asheef, Advisor, Ministry in Dai Zangi AAHF Community Leaders of Charsangi 12. Charlotte Osen, Deputy Head of 9 householders (7 men and 2 women) Mission, Danish Embassy in Charsangi 13. A Schpeldessen, First Secretary, Embassy of Norway Balkh 14. Tamin, Desy, Senior Development The Provincial Governor Officer, CIDA The Provincial Director of DRRD 15. Ashor Nigam, Director, UNAMA The DRRD Manager of NSP and Team 16. Wais Ahmed, Chief Coordinator, NRAP, The Provincial Head of OC and Team MRRD The Provincial Management of CHA 17. James Medhurt, Team Leader, DfID The Provincial Management of UN- 18. Essa Shamal, Deputy Programme HABITAT Manager, DfID The DRRD District Management 19. Mir Ahmad, Operations Officer, World The District Management and Team of Bank CHA 20. Abdullah, Ministry of Education The District Management and Team of 21. David Omari, Research Assistance, UN-HABITAT AREU The CDC of Markaz-e-Dawlatabad 22. Palwasha Kaker, Research Officer, The CDC of Choba Temorak Karni AREU Khail 23. Makko Matanube, Assistant Researcher, The village of Taimorak JICAACKU The CDC of Yakhdan 24. Barbara Rodey, Advisor, Committee for The CDC of Alichopan Social Development, USAID The CDC of Aliseena 25. Khalid Khusbin, Budget Officer, Ministry of Finance Bamyan 26. Basis Fedq, Development Coordinator, The Deputy Governor Embassy of Germany The Director of DRRD The NSP OC Consultant and team 1 Other workshops were given (including 2 DRRD staff) for the FPs and OCs in February The DRRD NSP Administrator 2006. Another workshop was The Director of AKDN (NSP FP) held in October for FPs, OCs, The AKDN Regional Manager of NSP donors and MRRD and other The AKDN Finance Manager ministerial representatives. The AKDN/NSP Director for Shibar District AKDN/NSP District field staff ANNEX C1: The CDC of Shah Qadam (Shibar STAKEHOLDERS CONSULTED District)

329 Representatives of 10 households in Chahar Dara Youth Committee in Dour Shah Qadam Robat village, Chardara District The Director of UN-HABITAT/NSP and Elders of Mangal Abad village, Chardara Programme Engineer District (no CDC) Representatives of 8 households in Herat Mangal Abad The Director of the DRRD Representatives of ACTED in Kundoz BRAC Regional Manager NSP OC Nangarhar The CDC of Hoftoi Sofla Facilitating Partner: The CDC of Robat Sangi BRAC Eastern Office, Jalalabad The village of Yaka Dokan NSP Manager Provincial Manager Kabul Monitoring Officer The Provincial Governor Provincial Engineer The Director of DRRD MT Provincial Office The DRRD NSP Administrator and MO Provincial Office Engineer IT, Provincial Office The NSP OC Consultant Provincial Engineer The Director and Management Team of SDF(NSP FP) MRRD Officials, Eastern Region MRRD The SDF District NSP staff responsible Headquarters, Jalalabad for Estalef Deputy Governor, Nangarhar The CDC of Godara (Estalef District) MRRD Director of Nangarhar Representatives of 10 households in Regional coordinator of Nangarhar Godara MRRD Director for Laghman Province The District Governor of Kalakan and Nuristan Province MRRD, Regional Council of Elders Advisor Representatives of 10 households in NSP Monitoring and Evaluating Officer Kalakan Centre (based with Eastern Region Manager – CDCs of Aziz Uddin, Salakhail, Taj counterpart to A Sattar, but uses OC Mohammed and Ghaza, Shakadara office) District Director of NSP MRRD Nangarhar

Kundoz NSP Eastern Region Offices, Jalalabad The Deputy Provincial Director of Regional Manager, Eastern Region DRRD (Nangarhar, Kunar, Nuristan, Laghman, Provincial and District DRRD staff Logar and Khost) Social Protection Officer Provincial Team Leader Finance and Admin Officer Deputy Regional Manager East Irrigation and Sanitation Officer Training Coordinator, Eastern Region Contracts Officer The NSP Provincial OC NSP Communities visited and CDCs The Provincial Manager of GRSP ACKUconsulted in Nangarhar Sholana, Chaparhar (including the GRSP Provincial Staff: CDCs of Sholana, Khanan, Miagan and Social Organizer Gulshir) Site Engineer Balla Dehe, Sorkhrod Facilitator Kooz Naza Abad, Sorkhrod The GRSP Chardara District Manager Ahmadzi, Sorkhrod Dago, Chaparhar GRSP District Staff: Mano, Chaparhar (including the CDCs Social Organizer of Nazier Kalay and Gradal Kalay) Facilitator Merzaian, Sorkhrod The CDC in Chogha-e-Sofla Village, Ditawai Amerkhil, Sorkhrod Khan Abad District Khankai Satkai, Achin Representatives of 7 households in Asadkhil, Achin Chogha-e-Sofla The CDC in Dour Robat Village Community visited without NSP Chardara District Bahsawal, Mohmamdara District NSP AFGHANISTAN Representatives of 11 household in Mid-term EVALUATION REPORT Dour Robat

330 Laghman Facilitating Partner: Maderia, Metherlan Office, Metherlan NSP Coordinator for Laghman and Nuristan

DACAAR NSP Engineer Team leader

NSP Laghman Office Team Leader Laghman

NSP Communities visited and CDCs consulted in Laghman Mashina Shertabad Hussain Abad Koarigi, Alingar District. Kokhi, Alingar District Kahoo and Chinnar Kali, Alishang District Tangi Shakarman, Alishang District Qala I Halim, Alishang District

Paktia Director of DRRD CDC members in Bar Dawlat Khel, Nader Shah Khel and Fatch Khan Khel Householders in Bar Dawlat Khel

Paktika Director of DRRD BRAC Regional Manager Provincial Manager Provincial Engineer Master Trainer District Coordinator of Muta Khan and Sharana Districts OC CDC members of Sapawol Village and District: Sharan CDC members of Loy Jomat VillageACKU and District: Sarawza, Sarawza

Takhar Provincial Director of DRRD OC team leader in Takhar Province CONCERN (FP) staff working in Versage District 4 Community Development Officers Finance Officer Members of Dar-e-Hawili CDC, Versage District Members of Sar-e-Tang CDC, Versage District

ANNEX C1: STAKEHOLDERS CONSULTED

331 ACKU

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332 D1 References

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ANNEX D1: MRRD (undated) ‘Presentation to the NSP Oversight Consultants Team (2005) REFERENCES Budget Committee Mid-Year Review 1384 ‘Implementation Progress Report as of 30 National Budget’, Kabul: MRRD. September’, Kabul: NSP.

335 NSP Oversight Consultants Team (2005) OECD (1998) Survey of Public ‘Status Report of the National Solidarity Management Developments, Paris: OECD. Program’, Kabul, NSP: 13 August. Peters, B. (1997) ‘Policy Transfer Between NSP Oversight Consultants Team (2005) Governments: the Case of Administrative ‘Implementation Progress Report as of 31 Reforms’, West European Politics, Vol. 20, July’, Kabul: NSP. No. 4. pp. 71–88.

NSP Oversight Consultants Team (2005) Post-war Reconstruction and Development ‘2nd Quarter Report from 1/4/05 – 30/6/05’: Unit (PRDU) (2005) Inception and First Annex A, ‘FP Reporting Progress Form’; Draft Report of the NSP mid-term Annex C ‘-1C-2C-3 NSP Progress Tables’; Evaluation, York, University of York: 21 Annex D, ‘OC, MRRD and FPs Training November. Status’; and Annex E, ‘Summary of Activities and Reports of the M&E Unit’, Kabul, NSP: PRDU (2005) ‘Preliminary Field Summaries July. by RAT Leaders’, Confidential Internal Reports, Kabul, University of York: NSP Oversight Consultants Team (2005) November. ‘A ide Memoir: Afghanistan – National Solidarity Program (NSP) Joint Government PRDU (2005) ‘Data Checklist, Final Notes and Donor Supervision April – May 2005’, and Interview Questions for Evaluation Kabul, NSP: 17 May. Phase I: Final Version’, Internal Document, York, University of York: 20 November. NSP Oversight Consultants Team (2005) ‘Annex II, Community Development PRDU (2005) Preparation Report for the Planning; Annex III, NSP/OC Operational Evaluation of the Afghanistan National Changes to Overcome Bottlenecks to Solidarity Programme, Confidential Subproject Disbursement and Completion; Internal Report, York, University of York: 26 Annex IV, Guidelines for Diesel Generator August. Projects; Annex VI, NSP’s Gender Policy; and Annex VII, Concept Paper for PRDU (2005) ‘Technical Proposal Implementation Criteria for the NSP “top-up Submission Form [for the NSP mid-term grant”’, Kabul: NSP. Evaluation]’, York, University of York: 20 April. NSP Oversight Consultants Team (2005) ‘Copy of NSP Roll Out Plan – all Years’, Pratt, Brian and Peter Lozios (1992) Kabul: NSP. Choosing Research Methods: Data Collection for Development Workers, NSP Oversight Consultants Team (2004) Development Guidelines no. 7, Oxford: ‘Operations Manual, March 2004’, Kabul, Oxfam Print Unit. NSP: 1 March. Rahman, Habib Ur (2004) ‘Strengthening NSP Oversight Consultants Team (2004) Local Governance Through Community- ‘Status as of 31 March 2004 Report’, Kabul, ACKUBased Development Programmes’, MA NSP: April. Dissertation, PRDU, York: University of York. NSP Oversights Consultant Team (undated) ‘Standard List of Sectors and Outputs Rhodes, R. (2000) ‘Governance and Public Developed by MIS technical groups’, Kabul: Administration’, in J. Pierre (ed.), Debating NSP. Governance, Oxford: OUP.

NSP Oversight Consultants Team (undated) Richter, Carole (2003) Action Planning: The ‘Follow up of the Aide Memoire of the Challenges Facing Decentralised Local Donor Supervision Mission: the Report of Government Recovering During Low the Oversight Consultant concerning the Intensity Conflict, with Special Reference to Tasks of OC’, Kabul: NSP. Adjumani and Moyo, Uganda, PhD Thesis, PRDU, York: University of York. Organisation for Economic Cooperation and Development (OECD) (2002) Senior, B. (2002) Organisational Change, Distributed Public Governance: Agencies, Harlow, FT Prentice Hall: Chapters 1 & 6. NSP AFGHANISTAN Authorities and other Autonomous Bodies, Mid-term EVALUATION REPORT Paris: OECD.

336 Simons, H., G. Hart, and C. Walsh (1997) World Bank (Agriculture and Rural One Clear Objective: Poverty Reduction Development Sector Unit, South East Asia) through Sustainable Development, Report (2005) ‘Implementation Completion Report of the Committee of Review on the on a Grant in the Amount of SDR33.7 Australian Overseas Aid Programme (the Million (US$42 Million equivalent) to the Simons Report), Canberra: AusAID/ Islamic Republic of Afghanistan for the Australian Government. Emergency Community Empowerment and Public Works Project’, Report No. 33120-AF, Stoker, G. (2005) Public Value Manage- Washington D.C., World Bank: 27 July. ment: A New Narrative for Networked Governance? Institute for Political and World Bank (2005) Afghanistan – National Economic Governance (IPEG), Manchester: Solidarity Program (NSP) Joint Govern- University of Manchester, U.K. (available ment and Donor Supervision, April–May from the PRDU). 2005, Kabul/Washington D.C.: World Bank.

Stoker, G. (2004) Transforming Local World Bank Operations Evaluation Governance, Basingstoke: Macmillan Department (2004) Bosnia and Palgrave. Herzegovina: Post-Conflict Reconstruction and the Transition to a Market Economy, United Nations Cartography Section, ‘Map An OED Evaluation of World Bank of Afghanistan’, Support, Washington D.C.: World Bank. http://www.un.org/Depts/Cartographic/map /profile/afghanis.pdf, accessed 10 October World Bank Operations Evaluation 2005. Department (2004) Croatia Country Assistance Evaluation, Report No. 30714, United Nations Development Programme Washington D.C., World Bank: 17 (UNDP) (Afghanistan Country Office) November. (2005) Promotion of Sustainable Livelihoods Programme, Kabul, UNDP: 1 World Bank (1994) Governance; the World August. Bank’s Experience, Washington, D.C.: World Bank. UNDP (2004) Security with a Human Face: Challenges and Responsibilities, World Bank, ‘Project Profiles on Agriculture www.undp.org/dpa/nhdr/af/AfghanHDR200 & Rural Development, Poverty, Public Sector 4.htm, accessed September 2005. Governance and Social Protection’, http:www.worldbank.org, UNDP (2000) Concepts of Governance and accessed September–October 2005. Sustainable Human Development.

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ANNEX D1: World Bank (2005) Afghanistan National REFERENCES Solidarity Program (NSP) Supervision Mission, Washington D.C., World Bank: November. 337 Post-war Reconstruction & Development Unit (PRDU)

‘...linking theory and practice for enablement and development.’

The Post-war Reconstruction and Development Unit (PRDU) is a leading centre for research, consultancy and learning on post-war reconstruction and development. Founded in 1992 at the University of York, the PRDU’s mission is to advance education and learning in the management and planning of reconstruction after war, humanitarian intervention in complex emergencies and peacebuilding.

PRDU links theory and practice for the enablement and development of war-affected societies. The Unit’s work focuses on three core areas:

Conceptualisation: Facilitating the development of a vision for reconstruction based on context analysis, with participatory needs assessment and strategy development.

Institution Development and Transformation: Supporting the development of human resources, appropriate administrative systems and institutional responses in the transition fromACKU crisis management to long-term development programmes.

Participatory Evaluation: Promoting people-centred evaluation of progressive goals and strategies and the dissemination of good practice.

© 2006 Post-war Reconstruction & Development Unit, Contact: The University of York, The Administrator Tel: +44-1904-432640 and Derwent College Fax: +44-1904-432641 Ministry of Rural University of York Rehabilitation and Heslington Email: [email protected] Development, Islamic York YO10 5DD www.york.ac.uk/depts/poli/prdu/ Republic of Afghanistan