Local Governance in Afghanistan: A View from the Ground

Afghanistan Research and Evaluation Unit
2011
Several forms of armed anti-government activity were observed in the course of the research. In
the northern provinces there were criminal bands, initially small in number, involved in robbery
and extortion. As a result of inaction by the government and ISAF, they were able to rapidly grow to
take over substantial parts of districts. As they did so, they developed links of convenience with the
Taliban and operated to their bidding, for which they were rewarded. Although they use the language
of Islam, these groups are more economic in nature. By contrast, the Taliban and the armed wing
of HIA are driven more by religion and politics. The armed wing of HIA in particular was operating
in Laghman and to a lesser degree in Wardak. In both these provinces, the districts were largely
controlled and administered by the Taliban. They use traditional dispute resolution mechanisms
to deal with local issues (in a similar manner to the present government), but regularly undertake
brutal forms of exemplary justice to ensure local compliance to their rules and norms. Other than in
Laghman, where there was an Al Qaeda presence, there were few foreigners reported to be in the
Taliban ranks. For a more detailed description of the security situation in each of the six provinces,
see the provincial summaries in Annex 2.
4.2 The police
In each of the research districts, the police were organised in the following departments: Jenaye
(Criminal), concerned with the investigation of murder, rape, theft, etc; Kashf (Detection), which
is split into Astekhbarat (Intelligence), dealing with political and intelligence related issues as
well as of police discipline, and Mavade Mokhader (Counter Narcotics); and Terrorism, conducting
counterinsurgency in cooperation with other law enforcement bodies. In most districts the chief of
police and the district governor judged police numbers as inadequate to meet security needs, and it
was frequently stated that forces were only operating at 50-60 percent of capacity.
Police reform was undertaken by the Ministry of Interior during 2008-09, with all senior appointments
now made through a competitive process. At a provincial level, the chief of police can make
recommendations to the five zonal authorities for staff promotion. If approved, applications are
then sent to the Ministry of Interior (MoI). Lower-level recruits require references from qaryadars
or maliks, while senior and mid-level ranks require consultation with the wali. However, influential
figures such as parliamentarians, provincial council members, and other leading figures also frequently
apply pressure to appoint their relatives and, as seen elsewhere, relationships with well-placed
individuals and the use of wasita are essential to secure transfers.
Very few women are employed in the police force and are present only in the provincial centre,
if at all. Senior officers drew attention to the need to have women in their service, and district
chiefs of police in particular complained frequently about their inability to search for belligerents
wearing burqas. Safe houses or separate prisons for women are also rare. As in other spheres, these
drawbacks demonstrate the problems associated with the lack of female engagement in public life
in Afghanistan.
The district chief of police holds weekly meetings with the woluswal, NDS, huqooq (legal officer
based in the justice line department), saranwal (prosecutor) and village officials. The police have
powers to arrest individuals suspected of criminal activity on the basis of warrants signed by the
saranwal or huqooq, and the right to detain and question suspects for up to 72 hours before they are
released or referred to the saranwal. Police respondents suggested that this was too short a period of
time and that cases were sent to the saranwal without adequate investigation. The lack of adequate
evidence (often assisted by bribes) then allowed the saranwal and qazi (judge) to dismiss cases. Also
common were complaints about parliamentarians, provincial council members and other influential
actors interfering in arrests and investigation. On the other hand, saranwals and qazis themselves
complained about the police releasing suspects on delivery of a payment.
Police reporting lines are often somewhat ambiguous. District chiefs of police submit monthly reports,
approved by the woluswal, to the provincial police department. At the provincial level, the chief
of police consults the wali on security matters but is not bound to follow his advice. There is a lack
of clarity over who the chief of police is actually responsible to—the Ministry of Interior (MoI) in the
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