Afghanistan Research and Evaluation Unit Synthesis Paper Local Governance in Afghanistan A View from the Ground Dr Douglas Saltmarshe June 2011 and Abhilash Medhi This page has been left blank for printing purposes Afghanistan Research and Evaluation Unit Synthesis Paper Local Governance in Afghanistan A View from the Ground Dr Douglas Saltmarshe and Abhilash Medhi June 2011 Afghanistan Research and Evaluation Unit 2011 About the Authors Douglas Saltmarshe is an AREU Senior Research Manager and has had links with Afghanistan since 1987. He is a Fellow of the Centre for Development Studies, University of Bath, UK. Abhilash Medhi is an AREU Research Officer with extensive field experience in Afghanistan. He has an MSc in Development Studies from the London School of Economics and Political Science. About the Afghanistan Research and Evaluation Unit The Afghanistan Research and Evaluation Unit (AREU) is an independent research institute based in Kabul. AREU’s mission is to inform and influence policy and practice through conducting high-quality, policy-relevant research and actively disseminating the results, and to promote a culture of research and learning. To achieve its mission AREU engages with policymakers, civil society, researchers and students to promote their use of AREU’s research and its library, to strengthen their research capacity, and to create opportunities for analysis, reflection and debate. AREU was established in 2002 by the assistance community working in Afghanistan and has a board of directors with representation from donors, the United Nations and other multilateral agencies, and non- governmental organisations. AREU currently receives core funds from the governments of Denmark, Norway, Sweden and Switzerland. Specific projects are being funded by the European Commission (EC), the International Development Research Centre (IDRC), the Humanitarian Aid Department of the European Commission (ECHO), and the UK Department for International Development (DFID). Editing: Oliver Lough Cover Photograph: Abhilash Medhi: Government building in Feroz Nakhchir District, Samangan AREU Publication Code: 1114E © 2011 Afghanistan Research and Evaluation Unit. The opinions expressed in this publication are those of the author and do not necessarily reflect those of AREU. Some rights are reserved. This publication may be reproduced, stored in a retrieval system or transmitted only for non-commercial purposes and with written credit to AREU and the author. Where this publication is reproduced, stored or transmitted electronically, a link to AREU’s website (www.areu.org.af) should be provided. Any use of this publication falling outside of these permissions requires prior written permission of the publisher, the Afghanistan Research and Evaluation Unit. Permission can be sought by emailing [email protected] or by calling +93 (0) 799 608 548. Local Governance in Afghanistan: A View from the Ground ii Afghanistan Research and Evaluation Unit 2011 Acknowledgements We would like to express our appreciation to AREU staff: Abdul Ahad Mohammadi, Ahmad Gul Asiar, Alice Burt, Ihsanullah Ghafoori, Jamilah Poya, Muhibur Rahman, Mumtaz Wamiqullah, Najeeburahman Sultani, Najia Hajizada, Rebecca Gang, Roya Mahtabi, Tamim Sharifzai and Zara Batul Nezami for their assistance in field research and analysis, Royce Wiles for his support as librarian, and Jay Lamey and Oliver Lough for editing and publication. Special thanks go to the AREU drivers who took us along many long and hard roads. We are also grateful for the assistance provided by the Organisation for Sustainable Development and Research, Save the Children Fund, Solidarités, Oxfam GB, Afghanaid, the Lashkar Gah Stabilisation Unit and the PRTs in Mehterlam, Musa Qala and Nad Ali. Finally, many thanks to those who so kindly took the time and trouble to review this paper and for their contributions to improving its quality and clarity. It should be noted, however, that any mistakes and misinterpretations are those of the authors. Douglas Saltmarshe and Abhilash Medhi June 2011 Local Governance in Afghanistan: A View from the Ground iii Afghanistan Research and Evaluation Unit 2011 Table of Contents Glossary ..............................................................................................................v Acronyms ............................................................................................................ vi Executive Summary .................................................................................................1 1. Introduction ���������������������������������������������������������������������������������������������������8 2. The Research Project �������������������������������������������������������������������������������������� 10 3. Local Government ����������������������������������������������������������������������������������������� 15 4. Security and Justice ��������������������������������������������������������������������������������������� 21 5. Service Delivery �������������������������������������������������������������������������������������������� 28 6. Representation ��������������������������������������������������������������������������������������������� 42 7. Policy Implications ���������������������������������������������������������������������������������������� 53 8. A Model of Improved Local Government ................................................................ 70 9. Conclusion ��������������������������������������������������������������������������������������������������� 72 Annex 1: Maps of Research Province ........................................................................... 74 Annex 2: Profiles of Research Provinces ....................................................................... 78 Annex 3: Division of Line Ministry Responsibilities .......................................................... 84 Annex 4: Literature Review ..................................................................................... 85 Bibliography ....................................................................................................... 87 Recent Publications from AREU ................................................................................. 93 Figures Figure 1: Institutional map ...................................................................................... 11 Figure 2: The long and short routes of accountability ..................................................... 31 Figure 3: A model of improved local government ............................................................ 71 Boxes Box 1: The Blind Ones and the Matter of the Elephant .................................................. 12 Box 2: Two cases of community-based dispute resolution .............................................. 26 Box 3: Laghman focus group: Pashtun female teachers ................................................. 41 Maps Map 1: Research provinces in Afghanistan .................................................................. 14 Map A1: Day Kundi Province .................................................................................... 74 Map A2: Wardak and Laghman Provinces ..................................................................... 75 Map A3: Faryab, Jawzjan, Samangan and Sar-i-Pul Provinces ............................................ 76 Map A4: Helmand Province ..................................................................................... 77 Tables Table 1: Performance and implications of Afghan government development budget execution .... 28 Local Governance in Afghanistan: A View from the Ground iv Afghanistan Research and Evaluation Unit 2011 Glossary Amlak landownership department of the Ministry of Agriculture, Irrigation and Livestock; alternatively used for officer based in the department arbab village representative, landlord; may be appointed by the community, and liaises in a quasi-official capacity between community or government; may also fulfill an executive role (see malik, qaryadar) arbaki local militia baad dispute-resolution practice; family of murderer gives either one or two unmarried girls to victim’s family burqa full-length women’s garment covering the entire body including the face and eyes hajj pilgrimage to Mecca hawza historical term for a military or police organisation Huqooq law office, civil cases department of the Ministry of Justice jihadi one engaged in holy war; sometimes equivalent to mujahiddin jirga council of elders convened on an ad hoc basis to address problems khan village leader or landlord Kuchi nomadic pastoralists; usually Pashtun malik village representative, landlord; may be appointed by the community, and liaises in a quasi-official capacity between community or government; may also fulfill an executive role (see arbab, qaryadar) madrassa religious school manteqa a variable unit of social allegiance or spatial territory that may unite villages maraka gathering Meshrano Jirga upper house of parliament mujahiddin resistance fighters during the Soviet period Mustofiat treasury department of the Ministry of Finance Pashtunwali Pashtun code of conduct qaryadar village representative; may be appointed by the community, and liaises in a quasi- official capacity between community or government; may also fulfill an executive role (see arbab, malik) qazi judge qawm unit of social solidarity that can be based on kinship, residence or occupation saranwal prosecutor based in the office of the Attorney General Sayed descendants of the Prophet