AFGHANISTAN

AFGHANISTAN LOCAL
MAY 2007
This publication was produced for review by the United States Agency for
International Development. It was prepared by ARD, Inc.
AFGHANISTAN
GOVERNANCE ASSISTANCE
PROJECT (ALGAP)
LESSONS LEARNED REVIEW

Acknowledgments
This Lessons Learned Review of the Afghanistan Local Governance Assistance Project (ALGAP) resulted
from collaboration among the project staff and the ARD home office. The Review was written by Kim
G. Glenn and produced by ARD, Inc. ARD would like to acknowledge a number of people who
contributed substantively to the Review. They include Douglas Grube, the chief of party for ALGAP
who brings a comprehensive understanding of all the project activities and the project history from its
inception. The ALGAP staff contributed notably candid observations and insights rooted in their firsthand
understanding of the project activities in the field and the context of the Afghan culture and reality.
USAID implementing partners associated with national and subnational governance made substantial
contribution through their meetings with Mr. Glenn. Mr. Glenn also met with representatives of
Provincial Councils and government in the provinces of Baghlan, Kunduz, and Samangan whose
observations and comments added depth, credibility, and context. See Appendix B for a list of key
interviewees. Recognition also goes to ARD’s Senior Technical Advisor, Steve Reid, and the USAID
Cognizant Technical Officer, Mohamed Zahar, who gave valuable guidance and support.
Prepared for the United States Agency for International Development, USAID Contract Number
AEP-1-809-00-00016-00, Task Order 809, under the Technical Services to Support USAID Global
Bureau's Center for Democracy and Governance (G/DG) in Strengthening Democracy and Good
Governance: Decentralization, Participatory Government, and Public Management (Decentralization)
Indefinite Quantity Contract (IQC).
Implemented by:
ARD, Inc.
P.O. Box 1397
Burlington, VT 05402
COVER PHOTO: The Provincial Council: A Bridge for the People. Courtesy Sayara Media and Communication,
Afghanistan (http://www.sayara-media.com)

AFGHANISTAN LOCAL
GOVERNANCE ASSISTANCE
PROJECT (ALGAP)
LESSONS LEARNED REVIEW
MAY 2007
DISCLAIMER
The author’s views expressed in this publication do not necessarily reflect the views of the United
States Agency for International Development or the United States Government.

CONTENTS
ACRONYMS AND ABBREVIATIONS ............................................................................ iii
INTRODUCTION ............................................................................................................... v
1.0 METHODOLOGY......................................................................................................... 1
2.0 GOVERNANCE IN AFGHANISTAN: AN OVERVIEW .......................................... 3
2.1 GOVERNMENT STRUCTURES....................................................................................................... 3
2.2 SUBNATIONAL GOVERNMENT RELATIONSHIPS ........................................................................ 4
2.3 EMERGING TRENDS IN GOVERNANCE ........................................................................................ 5
3.0 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT: AN
OVERVIEW ................................................................................................................... 7
3.1 PURPOSE....................................................................................................................................... 7
3.2 EVOLUTION FROM THE AFGHANISTAN STABILIZATION PROGRAM (ASP) ERA..................... 7
3.3 APPROACH................................................................................................................................... 8
3.4 COMPONENTS ............................................................................................................................. 9
3.4.1 Capacity Building....................................................................................................... 9
3.4.2 Civic Education........................................................................................................10
3.4.3 Facilitation Development ......................................................................................11
4.0 FINDINGS ................................................................................................................... 13
4.1 PROVINCIAL COUNCILS............................................................................................................13
4.1.1 Resolve Disputes.....................................................................................................13
4.1.2 Act as an Oversight Body .....................................................................................14
4.1.3 Are the Voice of the People.................................................................................15
4.1.4 Add Local Leadership for Addressing National Issues....................................15
4.2 CAPACITY BUILDING ACTIVITIES..............................................................................................15
4.2.1 Lessons from Workshops.....................................................................................16
4.2.2 Consultation Tours, Possibly the Most Important Activity ...........................17
4.2.3 Conferences and Provincial Exchanges; Sometimes “Conferring” is Enough
....................................................................................................................................17
4.3 CIVIC EDUCATION ACTIVITIES.................................................................................................17
4.3.1 Roundtables: Radio and TV Require Special Formats.....................................18
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW i

4.3.2 Lessons from the Successful Mobile Theater....................................................18
4.3.3 Lessons Regarding Mass Media ............................................................................18
4.4 PROJECT MANAGEMENT ...........................................................................................................19
4.4.1 Fly Without a Pilot .................................................................................................19
4.4.2 Recruit Locally.........................................................................................................19
4.4.3 Avoid Field-Based Project Offices.......................................................................20
4.4.4 Proceed with or without a National Government Counterpart..................20
4.4.5 Build Capacity at District Levels..........................................................................20
4.4.6 Extend Support to Provincial Government Actors.........................................21
4.4.7 Anticipate Need to Build Capacity Everywhere...............................................21
4.5 GENDER......................................................................................................................................21
4.5.1 Budget and Plan for Maharam ..............................................................................21
4.5.2 Provide Gender Training for Project Staff and Activity Participants............22
5.0 CONCLUSIONS AND RECOMMENDATIONS..................................................... 23
APPENDICES .................................................................................................................... 25
APPENDIX A: BIBLIOGRAPHY .................................................................................. A-1
APPENDIX B: LIST OF INTERVIEWEES................................................................... B-1
APPENDIX C: PROVINCIAL COUNCIL LAW ARTICLE 4 .................................... C-1
ii AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

ACRONYMS AND
ABBREVIATIONS
ALGAP Afghanistan Local Governance Assistance Project
APM Advanced Participatory Methods
AREU Afghanistan Research and Evaluation Unit
ASP Afghanistan Stabilization Program
CDC Community Development Committee
COP Chief of party
CSO Civil society organization
CTO Cognizant technical officer
FCCS Foundation for Culture and Civil Society
ISAF International Security Assistance Force
MRRD Ministry of Rural Rehabilitation and Development
NGO Nongovernmental organization
NSP National Solidarity Program
PBF Province-based facilitator
PDC Provincial Development Committee
UNDP United Nations Development Program
USAID United States Agency for International Development
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW iii

INTRODUCTION
After more than 25 years of almost constant war, Afghanistan is re-creating itself politically, economically,
socially, culturally, and governmentally. Part of this re-development calls for unprecedented representative
subnational governance with revitalized or new structures. These include Provincial, District, and Village
Councils. Accompanying these structures are opportunities and mechanisms for greater citizen participation in
governance within provinces.
ALGAP’s mission between November 2005 and June 2007 has been to support the development of the
capacity of the newly-elected and formed Provincial Councils to fulfill their roles and responsibilities. In the
process, ALGAP has contributed to the development of an environment in which the government, councils,
public, civil society, and businesses, can begin to work together effectively.
ALGAP organized a civic education campaign prior to the September 2005 Provincial Council elections,
designed to inform the public and the candidates for Provincial Councils about the legal status and role of the
Councils in accordance with the Constitution and the newly promulgated Provincial Council Law.
Immediately following the election and the swearing in of the successful Council members, ALGAP provided
an orientation and organization program for the Council members. Subsequently, ALGAP has carried out a
wide array of training and technical assistance activities aimed at strengthening the capacity of the Councils to
fulfill their roles and responsibilities. At the request of the Provincial Councils and other provincial governance
actors, ALGAP has expanded its technical support program over the past year to include participants from the
various government ministries working at the provincial and district levels. The project also initiated a national
civic education campaign to promote greater citizen participation in governance within the provinces.
With a few months left in the project, USAID encouraged ARD to assess the technical and administrative
aspects of the ALGAP project that did and did not “work,” in order to provide recommendations for similar
future USAID programs. For the purposes of this Review, we define something that “worked” as a project
activity, policy, or approach that met its intended purpose particularly well and is worth considering in other
project contexts. Something that did not “work,” in this sense, is something that failed in a surprising or
notable fashion, which is also worth considering in other project contexts.
At the request of USAID, this Lessons Learned Review also addresses the broad question of support to the
Provincial Councils: whether or to what extent they should continue to receive support from USAID, the
Afghan government, or from other donors. The governance context in Afghanistan is in rapid transition and
the strategic questions surrounding subnational governance are critical. Further, during the 18 months of
ALGAP’s implementation, Afghan government support for Provincial Councils and for provincial governance
in general has been erratic. In taking stock of efforts to improve governance and state-building in Afghanistan,
donors have recognized the need for a more coherent strategy for subnational governance and for better
coordination of initiatives. Therefore, in addition to lessons on project implementation, USAID specifically
requested, to the extent that the Review findings support them, clear conclusions and recommendations
regarding immediate and future support to subnational governance in Afghanistan.
This report concludes that the Provincial Councils, despite limited resources and mandated authorities, are
making a useful contribution to subnational governance in a number of areas, including conflict and dispute
mediation, and oversight of provincial government activities. Furthermore, the Councils appear to be filling a
critical role as representatives of the population in the provinces, communicating their needs to government
administration, and advocating for improved security, public services, and infrastructure. Though they show
early promise, the Provincial Councils are currently at a very rudimentary stage in their evolution. Carefully
targeted, well-designed training and technical assistance to the Provincial Councils over the next several years,
combined with civic education campaigns aimed at the general public, would do much to speed their evolution
and improve their effectiveness.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW v

1.0 METHODOLOGY
A “lesson learned” for this exercise derives from an activity, policy,
or approach that is either reported or observed as having
“worked”; that is to say, it seems to have been well received or
effective in achieving its intended goals or outcomes. Alternatively,
a “lesson learned” may derive from an activity, policy, or approach
that notably did not work. In both cases, the “lesson learned” could
reasonably be recommended for use in future projects in
subnational governance in general, or for projects specifically in
Afghanistan regardless of the project objectives.
The Review took a multi-faceted approach to obtain answers and
insights into ALGAP, its goals, processes, and accomplishments.
The approach involved the review of program documents and
records, and individual and group interviews with ALGAP staff,
Provincial Council members, provincial government officials, and
other provincial governance actors. The consultant made two field
visits to observe ALGAP-implemented workshops. He also
conducted individual and group interviews and discussions with
ARD home office staff and USAID/Afghanistan personnel.
The major documents reviewed were:
• annual work plans and reports;
• monthly and quarterly activity and progress reports;
• ad hoc and formal studies or evaluations 1;
• success stories prepared in March 2007; and,
• short-term technical assistance consulting reports.
At the outset of the Review, the consultant identified the key elements of the ALGAP design, implementation
challenges, primary operational processes, and major programmatic successes. The consultant met with the
USAID cognizant technical officer (CTO), and key project staff to discuss the results of the initial review and
interviews and to identify the chief areas of importance. The six major areas identified were: project
management, gender, workshops, consultation tours, conferences, and civic education.
This Lessons Learned Review attempted to answer three simple questions with regard to technical assistance to
the Provincial Councils and the civic education activities. Broadly speaking, the responses from nearly everyone
associated with the project, as well as the documentation reviewed, provided correspondingly simple answers:
1. What worked? Everything.
2. What didn’t work? Nothing.
3. What next? More of the same.
Before the offices of the Jawzjan
Provincial Council, from left:
Council Secretary Alifsha Khan
and Council President Molawi
Abdul Ghani.
1 See the bibliography in Appendix A for a list of key documents contributing to this Lessons Learned Review.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 1
PHOTO COURTESY OF ALGAP PROJECT

On the surface these responses suggest great successes. Yet the relative progress towards meeting the immense
needs of Afghanistan remains extremely limited. Building a healthy subnational governance environment in
Afghanistan, in the broad sense, remains a very long-term goal towards which ALGAP has made significant,
but necessarily initial, “baby” steps.
It was necessary to undertake extensive probing to reveal anything that could be considered a “lesson learned”
and not simply an observation. Just because something “worked” doesn’t necessarily carry with it a lesson that
can be applied elsewhere. Two major reasons for this cautious approach were discovered.
• ALGAP was responding to such a clear and dramatic need that beneficiaries, especially the Provincial
Councils, valued and appreciated its activities highly. To a starving person, almost any food will taste good.
• In any circumstance, but especially within the Afghan culture, it is hard to persuade people to be critical, to
admit that something did not work as expected, and to analyze why, and thereby extract a lesson.
The circumstances in Afghanistan are so unusual and so fluid that any lesson learned will not easily be
applicable to other projects elsewhere, or even subsequent projects in Afghanistan.
2 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

2.0 GOVERNANCE IN
AFGHANISTAN: AN OVERVIEW
The Afghanistan Local Governance Assistance Project has operated in a complex, fluid, and emerging
governance environment. The national government, as well as the overall governance processes and actors, are
undergoing significant change. The central government is seeking to increase its capacity to fulfill its
responsibilities. These changes involve regular reviews and efforts to restructure the government, initiatives to
increase the capacity of individuals and organizations within the government, and reconsideration of some
traditional government roles.
At the same time, the transition environment is forming new governance bodies and modifying the role and
function of traditional bodies. Major changes include, but are not limited to, the formation of a new National
Assembly as well as the formation of Provincial Councils as provided for in the constitution that was adopted
in 2004.
2.1 GOVERNMENT STRUCTURES
National government: The central government, of course, remains a major governance actor at both the
center and in the provinces. Indeed, in terms of decision making the central government has been the major
actor, although it has been relatively weak in terms of enforcing policies and laws.
National Assembly: Governance in Afghanistan encompasses a host of new formal structures as well as the
traditional and semi-formal structures and processes. The National Assembly 2 is a legislative body that was
elected in September 2005. The National Assembly is comprised of two houses and represents the provinces,
enacts legislation, and must approve the appointment of ministers and other key government officials.
Provincial Council: Provincial Councils, also elected in 2005, primarily have an advisory role. Their major
authority under the Provincial Council Law promulgated in 2005 is the election of one of their members to the
Mishrano Jirga, the upper house of the National Assembly. Other roles include facilitating communication
between the government and the people and participating in or supporting a broad range of provincial
activities.
District and Village Councils: Also provided for in the Constitution is the election of District and Village
Councils. The roles and responsibilities of these bodies is not clearly stated in the Constitution nor has there
been enabling legislation to define these. Like the Provincial Councils, the District Councils will have the
authority to elect one-third of the members of the Mishrano Jirga. Initially, it was intended that the District
Councils would also be elected in 2005 along with the National Assembly and the Provincial Councils. This
election was not held, however, and no date has been fixed to hold it.
Traditional shuras, jirgas, and leaders: Governance in Afghanistan, at all levels, typically includes informal
or semi-formal councils (shuras in Arabic and Dari, and jirgas in Pashto), commonly comprised of elders,
mullahs, local commanders, and other respected male members of the country, province, district, or village, as
well as respected individual leaders. While these shuras and jirgas, and the traditional leaders forming them, do
2 Reference is frequently made in Afghanistan to the “parliament”. Officially, however, there is a National Assembly and a presidential form of
government rather than a parliamentary form of government.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 3

not have formal authority within the governance structure, they have and continue to exercise significant
influence on decisions affecting their respective villages, districts, and provinces. Additionally, some traditional
leaders have direct informal ties and relations with both the central administration and with the National
Assembly. At times the shuras and jirgas fulfill primary decision-making functions and are called upon to help
resolve disputes between individuals, groups, tribes, and even provinces.
Civil society, nongovernmental organizations (NGOs), and others: A variety of civil society
organizations (CSOs) and NGOs, professional associations, and others are emerging in Afghanistan as
governance actors. The project did not work extensively with them. However, in some instances Provincial
Councils, recognizing their importance, included them in the workshops and other ALGAP-supported
activities. These actors merit mention as an emerging part of governance throughout Afghanistan.
Provinces, districts, villages, and municipalities: Administratively and politically Afghanistan is comprised
of 34 provinces, approximately 239 3 districts, approximately 30,000 villages, and 217 municipalities. The
provinces have been grouped by international agencies and the central government into regions (often eight,
but sometimes fewer). These regions currently have little, if any, administrative or governance significance. The
government is comprised of 26 ministries and a variety of independent bodies, e.g., the Administrative Reform
and Civil Service Commission.
2.2 SUBNATIONAL GOVERNMENT RELATIONSHIPS
The central government is represented in provinces by a governor who is appointed by the president and
reports to him through the Ministry of Interior. Each province typically has an office for some or all of the
other line ministries. Large provinces are likely to have more offices than the 26 corresponding ministries, with
multiple offices from one ministry and representation from independent agencies.
The governor, the deputy governor, and the director of administration exercise substantial power and authority
over events within the provinces and the actions of other government offices within their province.
The provincial offices of line ministries formally report directly to their respective ministries in Kabul and not
to the governor. They are, however, subject to influence from the governor and typically seek his or her
approval or concurrence on major activities.
A similar structure exists, in principle, at the district level. However, the number of district offices of line
ministries is typically fewer than at the provincial level. The district governor 4 reports and is responsible
directly to the provincial governor. The line ministry offices in the districts report indirectly to the district
governor and directly to the provincial-level line ministry offices.
The result of the centralized structure is that officially very few governance decisions are made at the province,
district, or village levels. Program priorities and questions are referred up the chain of command of each line
ministry for a decision, albeit with some recommendation from the provincial governor. The provincial
governor is likely to be able to exert some influence on decisions even at the ministerial level, due to his or her
relationship with, and appointment by, the president. 5
Governance has been largely closed to direct or extensive citizen participation. The major avenues for public
involvement have been through the traditional shuras or jirgas, and traditional leaders of a district, province, or
other entity (in many cases a tribal grouping).
3 The number of districts is in flux since some district boundaries have not been finally established. Similarly, references are made periodically
to the possible creation of new provinces, with at least two provinces having been created within the past five years.
4 The position is referred by various terms: governor, director, and administrator.
5 There are a host of other factors that can influence the power and authority of a governor, including ethnicity and language as well as ties
with other influential persons or with members of the National Assembly.
4 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

2.3 EMERGING TRENDS IN GOVERNANCE
While there is a clear emphasis in Afghanistan on a strong central government, and a highly centralized form of
government in general, trends during the ALGAP project show some clear progress toward subnational
governance. These trends may be reinforced by historic and traditional local governance structures. The
Constitution provides for both some degree of delegation of authority and an increase in public participation in
decision making, at least with respect to development.
The government, while preserving the principle of centralism, shall delegate certain authorities to
local administration units 6 for the purpose of expediting and promoting economic, social, and
cultural affairs, and increasing the participation of people in the development of the nation. (Article
137, 2004 Constitution)
The Constitution, adopted by the Loya Jirga on 4 January 2004 (Afghan year 1382), affirms a “unitary state”
government in Afghanistan with highly centralized administration and decision making.
Many government leaders tend to subscribe to a belief that a centralized government structure is required for
development and security. They note that while the government is officially centralized in terms of decision
making, it is in fact weak in many ways. For example, difficulties have been encountered in transferring tax
revenues from the provinces to the central government. It is also difficult to obtain and implement
comprehensive plans or policies within the provinces. Moreover, some governors function with a high degree
of autonomy and with little loyalty to, or support from, the central government.
The international aid community places a similar emphasis on the development and maintenance of a strong
centralized government. Many among them feel that only a strong central government can deliver the
important reconstruction necessary to rebuild the country.
The central government, with the support and encouragement of donors, is placing a high priority on the
development of the capacity of the central ministries. It is common practice for central ministries to have, for
example, large cadres of expatriate and local advisors and thereby to obtain financial assistance for equipment
and materials to reinforce or further develop them.
Articles 138 and 139 provide for an increase in citizen participation in governance through the establishment
of Provincial Councils by free, direct, secret ballot.
The provincial council takes part in securing the developmental targets of the state and improving its
affairs in a way stated in the law, and gives advice on important issues falling within the domain of the
province. Provincial councils perform their duties in cooperation with the provincial administration.
(Article 139)
The roles, functions, and authorities of the Provincial Councils, as defined in the Provincial Council Law
promulgated in August 2005, are vague and limited. Nevertheless, the Councils are clearly intended to be an
avenue for communication between the government and the people and a mechanism for citizen access to and
participation in governance. (See Appendix C for Article 4 of the Provincial Council Law itemizing the
principal duties and responsibilities of the Councils.)
Additional opportunity for citizen participation is provided in Article 140 of the Constitution. This articles calls
for the establishment of district and village councils through direct elections. Elections for the District
Councils, also originally scheduled for September 2005, have been postponed. It is not yet clear when, or
whether, they will be take place, nor is it clear what roles and responsibilities the District Councils might have.
Elections for the Village Councils are not yet scheduled.
6 “Local Administration Units” are the local offices of the line ministries.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 5

Traditionally, direct citizen involvement in governance has been minimal, exercised through shuras and jirgas
whose membership comprised those (i.e., exclusively men) who had de facto power and authority, if not respect,
among the local population. Women typically have been excluded from participation and this pattern persists,
although some efforts are being made to correct the situation. Notably, by law, 30 percent of a Provincial
Council’s members must be female.
Some structures are being developed by the government and by donors to provide greater opportunity for
public participation in development planning and implementation. Community development committees
(CDCs) have been formed with NGO or international donor encouragement and support. The purpose of
these CDCs has been to include citizens in both identifying community needs and in implementing projects
developed to address those needs.
Religious leaders have traditionally played an important role in local governance and they continue to do so. In
areas where radio and television are not available or where illiteracy is widespread, a mullah’s voice may be the
only form of “mass media” available. Indeed, even today, mullahs are often solicited by government or other
parties to help spread messages or rally action by the public. Recent research suggests, however, that many
Afghans do not consider their mullahs well-versed in teachings of the Koran and feel that they lack
understanding of other Islamic sects. 7 Unless they receive training and are included in development activities,
they may not be prepared to tolerate, let alone support, changes in custom whether those changes are
motivated locally or from outside influences. Such changes would include the role of women and the
application of democratic governance.
Popular support for the new Provincial Councils, at least in principle, has been evident among local voters.
Studies by the Afghanistan Research and Evaluation Unit (AREU) indicate that, at least in parts of
Afghanistan, citizens increasingly accept and want more locally representative and inclusive structures. Voting
patterns reflected in the Constitutional Loya Jirga (Assembly) and the National Solidarity Program’s community
development committees (CDCs) suggest that when people are confident that their vote will be kept secret,
they tend to elect people other than traditional leaders, especially when those leaders are viewed as corrupt or
linked with criminal activities. 8
Thus, on the one hand, we have a strong popular and constitutional emphasis on central government and
authority. And on the other hand, we have specific provision in the constitution for local governance
combined with a strong tradition of local governance customs. The emergence of the Provincial Councils has
taken place within this conflicted context.
7 Fidai, M. Halim. “How Afghans View Civil Society.” February 2006.
8 Lister, Sarah. “Caught in Confusion: Local Governance Structures in Afghanistan.” March 2005.
6 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

3.0 AFGHANISTAN LOCAL
GOVERNANCE ASSISTANCE
PROJECT: AN OVERVIEW
3.1 PURPOSE
While ALGAP has undergone several modifications, its broad purpose has been consistent––to strengthen
subnational government and governance. This has been interpreted to mean increasing the technical
capabilities of government officials, and later and for most of the project, increasing the technical capabilities
of Provincial Council members as well as other provincial governance actors 9.
The purpose of the project as it became increasingly focused on Provincial Councils and provincial governance
was to help develop the ability of Provincial Council members to recognize and fulfill their roles and
responsibilities. An integral dimension of this was developing their ability to effectively relate with the
government and other non-government actors and to establish and maintain the Provincial Councils’ positions
as the only directly-elected bodies in Afghanistan.
Of necessity, a collateral ALGAP purpose has been to contribute to the development of capacity-building
resources in Afghanistan. ALGAP needed a group of individuals with training and facilitation skills, including
the ability to assess needs, design work-based learning opportunities, facilitate workshops and other group
learning events, and to be able to mentor other, less-experienced trainers and facilitators, as well as to utilize
their abilities in support of Provincial Councils. It became clear at the outset of the project that it simply was
not possible to locate individuals with the level of experience required. Thus ALGAP determined that it would
be necessary to “grow its own” professional staff. In the long run, taking this approach had the advantage of
contributing to the overall training/facilitation capacity within the country.
3.2 EVOLUTION FROM THE AFGHANISTAN STABILIZATION PROGRAM
(ASP) ERA
The ALGAP focus underwent significant change between October 2004 and October 2005. Initially ALGAP
was to support the Afghanistan Stabilization Program (ASP) and the development of district administration.
This support was to include the supervision of construction being undertaken by ASP in the districts. Within
this broad mandate the project was to provide technical assistance to ASP in the area of training, capacity
building, and administrative reform. Due to internal ASP and Ministry of Interior conditions it proved to be
unrealistic to pursue this assignment. During the first year, USAID also asked ALGAP to assist with the
development of alternative livelihood programs, counter-narcotics programs, and to provide technical advice
9 In Afghanistan citizens do not consider Provincial Councils as “government” and their members as “government officials.” ALGAP support
to government officials refers to provincial governors and line ministry officials.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 7

with respect to some Ministry of Rural Rehabilitation and Development’s (MRRD) National Solidarity
Program (NSP) efforts to develop community development committees. While short-term assistance was
provided, ARD and the USAID Democracy and Governance Office defined a focus that was more directly
relevant to the initial purpose of the project:. Concerted preparation for providing on-going direct technical
assistance to the Provincial Councils began in December 2005.
Before the election, ALGAP had become involved with Provincial Council issues related to the election
process. This initial assistance was in the form of organizing and conducting a pre-election nationwide
information program regarding the newly-passed Provincial Law and the role and function of Provincial
Councils. At that time, the major election focus was on the National Assembly with very little attention being
given to the Provincial Council elections. ALGAP was able to help fill this void.
The ALGAP public information program was directed primarily toward the Provincial Council candidates. The
intent was to assist them in acquiring a clearer concept of the position for which they were running.
Simultaneously, but with less emphasis, ALGAP sponsored public information spots on radio and television to
help the public become informed about the Provincial Council election and its importance for them.
In November 2005, shortly after the election, ALGAP prepared and implemented Provincial Council
orientation and organization workshops in 33 of 34 provinces for newly elected Council members. 10 The
donors and government realized that no real provisions had been made for the Provincial Councils following
the elections. Indeed no provision had been made to swear in the councilors, to provide office or meeting
space for them, or to insure that they had any operating resources.
With encouragement from the Afghan government, USAID, and other international donors, ALGAP began to
identify, develop, and provide needed technical assistance and support to Provincial Councils. After
approximately six months of activity, a logical modification was made to the ALGAP Provincial Council
assistance efforts. Provincial line ministry offices (administrative departments), governors’ offices, and
Provincial Councils requested that technical assistance also be provided to a broader range of provincial
governance actors. These requests came as ALGAP and the Provincial Councils more fully recognized that it
was necessary for the Councils to build solid working relationships with the provincial administration
(provincial governor, line ministry offices, and other actors within the province).
Thus, since late 2006, ALGAP made technical assistance available to other provincial governance actors. This
expanded the scope of the ALGAP work but enabled it to increase the use of the workshop materials and skills
that were being developed.
3.3 APPROACH
To support Provincial Council members in developing the skills and abilities required to fulfill their roles,
responsibilities, and functions as specified in the Provincial Council Law, ALGAP developed and has used a
broad range of activities. Underlying these activities has been a commitment to several principles:
1. Demand driven. To the extent possible, ALGAP has tried to respond to needs articulated by Provincial
Councils and later by some government and other provincial governance actors. The intent, if not always
the practice, has been to tailor capacity-building to specific, real, work-related needs
2. Work-focused. The various capacity development opportunities have been focused on tasks or
responsibilities being undertaken by the Councils or other provincial governance actors. At the outset of
the project some of these were identified by ALGAP on the basis of an assessment of the Provincial Law
and the skills required for the Councils to fulfill their roles and responsibilities.
10 Thirty of the 33 orientation workshops were conducted simultaneously in the respective provinces. Three were conducted within a few
days after the election and installation of the provincial council members and following the resolution of some election challenges. For
security reasons it was not possible to conduct the workshop in Uruzgan, the 34 th province.
8 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

3. Learn by doing. For most of the capacity-building activities, the Provincial Councils were asked and
expected to assume some responsibility for planning and implementing them, for example, provincial
consultations.
4. Work nationally. In part out of necessity and in part by design, ALGAP assumed what many viewed as a
high-risk approach—i.e., working in all provinces. The advantage of this approach is that no one was left
out. The determining factor for levels of assistance from ALGAP was the extent to which Provincial
Councils exercised their initiative and manifested a desire to obtain technical assistance.
Following these principles, ALGAP provided various forms of technical assistance and support for the 34
Councils 11 to develop the skills and abilities required to retain their independence while being a positive actor
in provincial governance within the terms of the Constitution and the Provincial Council Law 12.
3.4 COMPONENTS
To fulfill project objectives, ALGAP developed three major program components: capacity building, civic
education, and facilitation development.
3.4.1 Capacity Building
ALGAP’s capacity building component has encompassed a broad range of “learning and doing” activities.
Six basic workshop modules were developed to respond to the needs of Provincial Council members to
fulfill their responsibilities under the Provincial Council Law, the Provincial Council, and its relationships. The
modules included:
• PC and its Relationships,
• Information Gathering for Planning,
• Basic Administration Skills,
• Meeting Management and Facilitation,
• Action Planning, and
• Introduction to the Budget Process.
Supplemental workshop modules were outlined and
utilized at the initiative of the province-based facilitators
(PBFs) as they responded to needs expressed by the
Provincial Councils, including:
• Security,
• Violence against Women, and
• Media Relations.
Kandahar Provincial Councilor, Haji M.
Qasim, during PC Organization/
Orientation Workshop, 23 November
2005.
11 ALGAP continued to seek ways to work with all 34 provinces. It was, however, not possible to provide assistance to Uruzgan Province due
to security conditions that greatly restricted travel to or from the province.
12 A revision of the 2005 Provincial Council Law has been approved by both houses of the National Assembly and is, as of March 2007,
reportedly ready for signing by the president. This revision gives provincial councils greater formal responsibility and power.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 9
PHOTO COURTESY OF ALGAP PROJECT

Consultation visits by Provincial Council members to districts within their province. An early request from
Provincial Councils was for assistance in visiting the districts within their provinces. A repeated comment from
Provincial Council members was that while they were from the province, most of them had little firsthand
knowledge about it. Indeed, most had not traveled widely within the province even during the election
campaign. ALGAP provided the Councils with technical assistance in planning the visits and in preparing
formats for recording and analyzing the information they would gather.
The first round of ALGAP-supported consultations was undertaken in the period of April-June 2006. These
included only Provincial Council members and were of short duration. The provincial consultations were
modified for a second round in 2007. For these consultations the Provincial Councils could and did invite
provincial administration and other provincial governance actors to participate. ALGAP provided financial
support for all of the participants, within the guidelines it had established.
Basic office equipment and supplies were provided early in the Provincial Council term to enable them to
begin to operate. The Provincial Councils lacked even the most basic equipment and supplies and were not yet
receiving any operating funds. In addition to pens, paper, markers, envelopes and other clerical supplies,
ALGAP provided each Council with a filing cabinet and a choice of three cell phones with $50 pre-paid calling
per phone, or a satellite phone for provinces without cellular network access. The project issued five satellite
phones and 84 cell phones to 33 of the 34 provinces (Uruzgan excepted). Effective communication for the
Councils was an important component of project support.
Conference support: Since their formation, the Councils as well as the central government have solicited
ALGAP for support in organizing, conducting, and financing conferences in order to exchange information
and ideas on problems of common interest and to work together to forge solutions. Specific assistance
provided was as follows:
• Technical and financial assistance for a national conference of Provincial Council members in March 2005,
convened by the president of Afghanistan. ALGAP worked with the Office of Administrative Affairs to
prepare the conference. The project contracted master facilitators for the event and took responsibility for
reproducing conference materials and preparing participant packets. ALGAP contributed financially to the
repair of dormitory facilities for the conference attendees.
• At the request of Provincial Councils, ALGAP provided technical and financial assistance for regional
conferences in which both Provincial Council members and other governance actors participated. These
conferences were planned and conducted in late spring and summer of 2005. The preparation of the
conferences was undertaken by a regional committee that worked with the ALGAP province-based
facilitators.
Provincial exchanges: During the final months of the project, assistance was provided for provincial
exchanges involving Provincial Council members and other provincial governance actors, including local or
tribal elders and mullahs. The Provincial Councils had expressed an interest in these and requested financial
assistance for them.
3.4.2 Civic Education
ALGAP initiated a provincial governance-focused Civic Education Program during the fall of 2006. The
purpose of this program has been to contribute to efforts to foster a social and political environment in which
broad-based participatory governance might grow. As noted above, prior to the election ALGAP carried out
an information and education program designed to create awareness of the Provincial Council Law and the
roles and functions of Provincial Councils.
The ALGAP Civic Education Program following the election has been comprised of four different elements:
10 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

1. Provincial Council roundtable discussions which were organized and broadcast in nearly all provinces.
The purpose of these roundtables was to increase awareness of and familiarity with Provincial Councils
and their roles and functions.
2. A national mobile theater production was
developed and presented to introduce the
concepts of citizen participation and
collaboration with Provincial Councils and
provincial governance actors. A major theme
of the production was that citizen
participation was not only a right, but a
responsibility that could benefit the entire
province and country.
3. A radio and television adaptation of
mobile theater production was made in
both Dari and Pashto. This activity was
undertaken as a direct result of the response
to the mobile theater and to requests that the
production be made available in more
remote areas or in areas where the security
situation made it impossible for the mobile
theater to perform.
4. BBC New Home New Life production.
To reach a larger audience with messages
about provincial governance, ALGAP
contracted with BBC/Afghan Education
Projects (BBC/AEP) to incorporate
provincial governance themes into its
Mobile Theater performance in the provinces.
popular radio drama series “New
Home/New Life”, “People Talk” and “Village Voice” for broadcast throughout Afghanistan from early
May through June 2007. In addition to the radio programs, provincial governance messages are being
depicted in the BBC/AEP monthly cartoon magazine distributed nationally. Depending upon listener and
reader response to the provincial governance themes, BBC/AEP could determine the themes will become
an integral component of the program scripts of the ongoing radio broadcasts and the monthly magazine
productions.
The unifying message in these the civic education activities is that people and organizations can become
involved in provincial decision-making processes. The campaign also introduced the public to means for
becoming involved and to recognize the benefits of such involvement.
3.4.3 Facilitation Development
As ALGAP began to expand its program of assistance to the Provincial Councils, it faced the challenge of
identifying a pool of qualified facilitators and trainers. It rapidly became clear that the project would have to
devote a significant effort to developing its own human resources. The kind of staff ALGAP required simply
was not available.
Thus ALGAP developed a cadre of Afghan facilitators (province-based facilitators or PBFs) located in the
provinces to coordinate or provide technical assistance and to facilitate the development of an active and
inclusive provincial governance process that includes the involvement of the public—individually and through
groups––as well as government officials and staff.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 11
PHOTO COURTESY OF ALGAP PROJECT

With the recruitment of the field and headquarters staff it was necessary to undertake and maintain a program
of skill enhancement to enable staff members to be able to fulfill their responsibilities. In addition, as part of
the facilitation development process, ALGAP organized training of trainers sessions to orient PBFs to new
workshop modules as they were developed. Three international training consultants worked with the
facilitators and ALGAP program associates in designing, reviewing, and revising workshop modules.
12 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

4.0 FINDINGS
As noted earlier in this report, the circumstances in Afghanistan are unusual and fluid. Lessons learned will not
necessarily be applicable to projects in other countries, or even to subsequent projects in Afghanistan. These
lessons are not large building blocks whose weight and shape will contribute greatly to the foundation of other
projects. At best, they will be small stones or even pebbles that the reader may pick up easily and consider for
filling in a possible gap or to contribute to balance or shape in other project structures.
4.1 PROVINCIAL COUNCILS
Prior to, during, and after their election there was much debate and analysis about how the Provincial Councils
could possibly work given their vague mandate and virtually no authority, as well as their lack of resources. The
only specific Provincial Council authority is to elect from their membership one-third of the Meshrano Jirga
(Upper House of National Assembly) 13. All other roles and responsibilities are advisory in nature.
Some experts advocated holding off on electing Councils until a full legal and regulatory framework could be
put in place, and recommended that the government lead a dialogue to clarify in advance the coordinating
mechanisms and roles of the Councils with other subnational governance bodies.
In spite of these expressions of caution, candidates ran, voters voted, and the Councils met. ALGAP provided
support. Some in the government worried that the project was supporting “34 new mouthpieces,” that were
getting involved in local matters and making demands of the government, which had nothing to offer them.
This Lesson Learned Review indicates that those fears have been largely unfounded; many Provincial Councils
are developing the necessary capacities––skills and knowledge––to work with other provincial governance
entities to fulfill their duties and exercise their authorities, although the degree varies depending on the
province.
Taken together, the findings documented here suggest some strong lessons about the positive influence of the
Provincial Councils in particular and recommendations for continued support for the development of
subnational governance in general in Afghanistan.
During the course of this Lessons Learned Review the author has found substantial evidence to show that the
Councils are succeeding in defining a true and meaningful role for themselves in responding to provincial
needs. The sections that follow detail four specific areas in which Provincial Councils are making a tangible
contribution to provincial governance.
4.1.1 Resolve Disputes
This critical service of the Provincial Councils corresponds directly to Article 4 of the Provincial Council Law,
items 3 and 5. Anecdotes and reports of this highly successful role abound among ALGAP project staff as well
as Council members from Nimroz to Takhar. In chilling details, we hear reports corroborated by Councils
themselves of protracted disputes between individuals, families, districts, even provinces. In all cases heard so
13 In this first election, the provincial councils elected two-thirds of the members of the Meshrano Jirga since the district councils have not
been elected and thus could not select one-third.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 13

far, Councils succeed even where such disputes span decades and have defied efforts by the government and
traditional structures to resolve them.
In one instance, a government ministry intended to sell off pasture land over which families in the area held
customary rights to graze livestock. The conflict led to serious threats of violence. The families feeling
threatened with loss of important pasture land called on the Council to make their case with the Ministry
involved. The Ministry dropped its plan.
In another instance, three local commanders were in conflict and came to the Council to help resolve their
dispute, notably because they do not consider the Provincial Council to be “government.” Indeed, we hear a number of
reports of constituents coming to the Council with conflicts precisely because they felt that the Council, being
elected, would be fair and impartial, whereas they feared “government” representatives would not.
ALGAP staff reported the case of a recent and tragic incident in Jalalabad 14 that risked provoking a major
violent uprising. However, the Provincial Council spoke to the community involved and persuaded them not
to respond with violence. While this report is uncorroborated, it is notable that indeed there was no violent
uprising. Also, this kind of Council role is consistent with many other reports; they are seen as a true “bridge”
between the people and the government, an authority whose allegiance is to their constituents, a neutral body
which has the de facto if not de jure power to facilitate and mediate conflicts and to represent their constituents’
interests to the government. In some cases, the Provincial Councils and their members serve as surrogates for
the traditional bodies and elders.
Tribal disputes also are being brought before Councils. One Council even reported incidents of murder being
brought before them for action, suggesting that the Councils are filling a quasi-judicial void. The processes that
Councils use to resolve disputes seem to be 15 traditional ones that draw on respected local elders, mullahs,
ulemas 16, and others to participate in jirgas or shuras or other meetings during which the matters are aired until a
consensus resolution is reached. Specialists in rule of law might argue that this is an extra-legal mechanism that
erodes important development objectives. However, given the absence of a functioning judicial system in many
parts of Afghanistan, the volatility of the country, and the long tradition of local resolution of disputes through
consensus, it would appear that this role is not only valid but critical at this time.
4.1.2 Act as an Oversight Body
Council members express a commitment to and responsibility for monitoring the activities within their
Provinces to protect the interests of the people. This corresponds directly to their legally-defined duties under
Article 4 of the Provincial Council Law. They interpret this to mean they have responsibility to confirm that
the many donor- and government-funded projects active in their area are proceeding as intended. While they
have no authority to act in those instances where they may find cause for complaint, they have a clear role as a
“bridge” between the people and the government.
The oversight function is being linked to the Councils’ communication roles. Some of the Councils are already
taking the initiative to publish newsletters. While these newsletters are few and are targeted toward limited,
often governmental audiences, they are airing problems and issues that need attention. Further, the Councils
have strong links to the Meshrano Jirga and, both formally and informally, are relating problems to them for
possible support or resolution. Many Councils also have good relations with the governor and line ministry
14 In early March 2007 an International Security Assistance Force (ISAF) soldier fired on and killed a number of civilians along the Jalalabad
road.
15 This Lessons Learned Review does not pretend to be a systematic research into this question. See Section 1.0 on lessons learned
methodology.
16 Religious scholars.
14 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

epresentatives to whom they can report their findings. There has been a small, but significant number of
Councils requesting technical assistance from ALGAP to work more effectively with mass media to inform
their constituents and to support additional newsletters or other means of disseminating information.
In addition, any private citizen who may have cause for complaint about a project can bring it to the Council’s
attention because he does not consider the Council to be government. In one dispute that somewhat indirectly illustrates
this lesson learned, a donor-funded food-for-work program came under criticism by local participants who
complained that the amount of food was insufficient for the work involved. The Council explained that the
road they were constructing is the balance of the benefit they receive in addition to the food, and taken
together they are receiving fair compensation for their efforts. The project proceeded. The Council, at least in
this case, not only acted to verify the legitimacy of an activity, but defended it from unwarranted resistance and
criticism. There is no other entity that seems to bridge so nicely between “government” and the people.
4.1.3 Are the Voice of the People
One governor explained that Afghanistan’s enemies have powerful propaganda machines that criticize the
government and its allies. As Councils mediate disputes and monitor reconstruction or other activities in their
provinces, they are in a good position to explain to their constituents the facts. They have the trust and
creditability to do so, whereas “government” actors would not.
As noted above, ALGAP’s workshops are including such topics as how to communicate with the public and
how to work with the media. The Councils already have demonstrated the ability to convene meetings based
on more traditional concepts, during which they can listen to and talk to their constituents. Councils convened
gatherings that exceeded 500 people during their consultation tours. These are important opportunities for
informing the general population of progress, as well for allowing them to air concerns and grievances.
4.1.4 Add Local Leadership for Addressing National Issues
During early spring 2007, a few Councils were taking initiatives to assist the fight against poppy production and
to increase security for their provinces. ALGAP is providing, with USAID concurrence, technical and limited
financial support for additional provincial consultations that will focus specifically on poppy production. In
addition, several Councils are seeking assistance in organizing and conducting information-sharing and
awareness-raising seminars or workshops, and in developing their ability to monitor and report the actions of
government with respect to security and poppy production.
4.2 CAPACITY-BUILDING ACTIVITIES
ALGAP has used four main activities through which the Councils could build their capacity to fulfill their roles
and responsibilities: workshops, provincial consultation tours, conferences, and provincial exchanges. All four
types of activity are reported to have been highly effective and valued by the Councils; the consultation tours
seem to be a clear favorite.
The perceived value of the consultations appears to stem from the direct and personal way it introduced the
Councils to their constituents. In addition, the consultations fostered lines of communication and cooperation
between the Council and other subnational governance actors.
Within each of these groups of activities, we identify specific lessons learned. However, for all lessons learned, we feel
compelled (the chief of party [COP] and the author) to emphasize one that specifically relates to building capacity, cutting across all
groups of activities:
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 15

Building capacity in Afghanistan is a long-term endeavor. ALGAP seemed to be in the right place at the
right time to provide specific capacity-building activities that met real needs in a meaningful way. However,
ongoing interactions with the Council and other subnational governance actors indicate unequivocally that any
successes these activities realize, barely scratch the surface of the problem. Helping Councils to master the
most basic skills in analyzing, planning, organizing, coordinating, following through, and a host of others that
we may take for granted, will require continued attention, support, and exercise.
It is hard to fully appreciate the challenges the Provincial Council members face as individuals as well as teams.
Much of the Afghan society is illiterate, as are many Council members. Even those who have university
educations often lack practical experience working within any sort of business or organization. Keeping
records of their decisions, drafting a letter from the Council, filing correspondence in a way that makes it easy
to retrieve, and responding formally to inquiries and requests for help, are all examples of activities for which
Councils must develop procedures and abilities without any precedent or foundation.
4.2.1 Lessons from Workshops
Provide participants with hands-on training. Workshops began in November 2005 with a basic orientation,
and then evolved to address other topics of immediate relevance. The initial workshop was an orientation to the
law regarding the Provincial Council and its roles and responsibilities as described by the law. ALGAP
developed and conducted the workshop with little direct substantive comment from Provincial Council
members who had just been elected. Subsequent workshops, however, were developed with input from the
province-based facilitators (PBFs) based on direct observations of the Councils. ALGAP staff also met with
small groups of PBFs and Council members to discuss specific modules as these were being developed.
Participation and interest remained high. Admittedly, ALGAP technical staff remained actively engaged to help
identify possible topics of relevance, as participants were in a position of “not knowing what they didn’t
know.”
As time passed, provincial councilors and other workshop participants accepted increasing responsibility for
identifying workshop topics. Some special focus topics included security, anti-corruption, violence against
women, eliminating poppy production, and writing concept papers and proposals. Council members also
identified English language and computer literacy as important topics for building their capacities.
Participatory format works? ARD has developed and used Advanced Participatory Methods (APM)
worldwide in many circumstances and finds it to be a universally effective workshop approach. Some
questioned whether APM would be acceptable in a culture characterized by a conservative perspective or
unaccustomed to a more informal and interactive style of group work. Indeed, these techniques are radically
new in most Afghan contexts but proved popular according to ALGAP’s Afghan staff, as measured by the
feedback as well as the commitment of some, if not all, workshop participants. In balance, it takes a long time
and constant reinforcement, coaching, and mentoring before facilitators can use these methods effectively.
Results with APM are generally better when two or three facilitators can work in a team. Because these
conditions (time, mentoring, facilitator teams) were not always available, it is difficult to determine how well
PBFs were able to fully master and deploy APM techniques in their work with the Provincial Councils.
Multiple-day events are feasible and effective. As workshops were developed and scheduled, an emphasis
was given to one-day events. In part this was due to travel and security concerns as well as an attempt to
recognize constraints on women traveling in some provinces. However, the tendency toward one-day
workshops stemmed in part from comments from Provincial Council members that long-term workshops
created a hardship for them since they had other work to do. Further, their schedules were frequently
interrupted by calls from the government for meetings in Kabul. Over time it became clear that slightly longer
workshops were likely to have greater learning impact. It is also possible that one-day workshops could be
conducted at more frequent intervals.
16 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

4.2.2 Consultation Tours, Possibly the Most Important Activity
Rural Afghanistan often lacks electricity, radio, and telephone, and its population is at least partly illiterate. For
the Councils to serve as a bridge from the people to the government, face-to-face contact is important. Indeed,
this one activity seems almost universally to be the top priority for Councils, and support for their continuation
is emphasized. ALGAP’s support for consultation tours emphasized technical assistance in planning them.
Financial support to cover travel-related expenses is also necessary, in the absence of any operating budget
from the government.
From the first tours, the Provincial Council members and provincial governance participants ascertained that
the information gathered during the trips needed to be shared with authorities responsible for provincial
planning. Reports from the consultation tours indicate that in many instances, councilors did in fact transmit
requests or needs from districts or villages visited to the appropriate line ministry offices within the province
for action. In some isolated cases the Provincial Council members also reported that they followed up the
requests to the ministerial level in Kabul. Thus the consultations had some real benefit for the people and for
the government.
Reports from the field indicate that a major value of the consultations was that they brought attention to
remote areas that few, if any, government or other officials had previously visited. This was a recurring
comment reported by participants in the consultations.
4.2.3 Conferences and Provincial Exchanges; Sometimes “Conferring” is Enough
With ALGAP’s support, the Provincial Councils met both regionally and nationally. Afghanistan’s provinces
have widely varying subcultures, norms, and language differences. Dari and Pashto are the dominant languages,
and also define two populations that compete for attention and authority.
These initial conferences may have helped to bridge some of these barriers and to establish solidarity and sense
of common purpose among the Provincial Councils. The objectives and agendas for the conferences were not
always action-oriented. However, all the participants felt these conferences were extremely important and they
took an active part in them.
Provincial Councils continue to request support for such conferences, and ALGAP has increasingly pressed
for more specific conference objectives and action-oriented agendas. ALGAP is encouraging the Councils to
apply techniques learned from the popular Meeting Management and the Action Planning workshops as they
organize and conduct provincial and regional meetings.
Nevertheless, we must recognize that to some degree, in this culture and environment, just meeting provides
significant benefits to Councils in establishing lines of communication, mutual respect, and trust. What is
agreed upon may be less important than establishing the process of communication.
4.3 CIVIC EDUCATION ACTIVITIES
The ALGAP civic education campaign used a variety of activities that had already proven successful in
Afghanistan. Reputable research institutions had used roundtable discussions and focus groups to illuminate
public opinion. The Election Commission had used mobile theater productions to promote the elections as
well as to inform the population. Radio and TV remain among the most cost-effective means for reaching
broad segments of the population, although remote areas may not have access to them. Print media still has a
place, even among a significantly illiterate population.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 17

4.3.1 Roundtables: Radio and TV Require Special Formats
ALGAP contracted with an Afghan NGO, the Foundation for Culture and Civil Society (FCCS), to conduct
and record roundtable discussions in the provinces and then edit them for 30-minute radio broadcasts. While
FCCS had extensive experience conducting roundtable discussions, it had limited experience conducting them
specifically for broadcast over radio and TV. Several difficulties were encountered. Facilities in the provinces
where the events were held were rudimentary. In some instances, local roundtable hosts lacked adequate
experience in this type of forum. Participants in the events also lacked experience in the roundtable format as
well as with radio and TV broadcast events. While ultimately these roundtable events were deemed highly
successful given the circumstances, better preparation of facilities, hosts, and participants is needed to improve
their effectiveness.
4.3.2 Lessons from the Successful Mobile Theater
In general, the mobile theater performances conducted by ALGAP through a subcontract with Sayara Media
and Communication were extremely successful, attracting large audiences of all ages throughout the country. In
addition, these performances brought an important entertainment value to otherwise dry and possibly
threatening subjects. Many performances attracted over 500 people, and in some cases the audiences topped
1,000. The lessons learned, while worth remembering, represent relatively minor glitches.
Weather matters. Due to various circumstances, the mobile theater campaign was carried out in winter.
Where performances were done outside (as they often were), audiences and performers endured cold weather.
Winter also compromised travel schedules and made it hard, in some instances, to respect performance dates
and times that had been announced in advance.
Pay attention to local cultural sensitivities. Humor here––as almost anywhere––is an important element of
a live theater production. In general, this worked very well. There were a few instances, however, in which the
performers could not fully appreciate local cultural sensitivities, and the humor fell flat or even offended the
audience.
Give away the story. ALGAP developed a colorfully-illustrated printed version of the story for distribution at
every performance. The illustrations, format, and design appealed to literate and illiterate members of the
audience. This helped spread the story and its accompanying message about the role of the Provincial Council
throughout the country, reinforcing it with those who attended a performance, as well as extending it to those
who did not. While not supported by any formal survey, it appears that the reference to the Provincial Councils
as being a “bridge” between the government and the people has become a widely-shared concept and is likely
to have been enhanced by the extensive mobile theater performances and the broad distribution of the
booklet.
4.3.3 Lessons Regarding Mass Media
Where available, radio and TV are effective. Afghans listen to the radio. This is the most widely used and
available mass medium. Where available, TV is popular as well. However, there remain significant populations
that either cannot or do not use either medium. TV and even radio broadcasts do not reach many remote
villages, especially in mountainous areas.
Don’t assume printed materials won’t work in an illiterate context. Afghanistan has a strong history of
literature that has resulted in a profound respect by Afghans for the written word. In communities where
many are illiterate, a common pastime is to have someone read to groups of people. Even if they are illiterate,
Afghans will generally respect and safeguard written material and will find someone to read it to them. In
18 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

addition, where written material is scarce, such as in remote areas, any written material available is read by
many, both by the fully literate as well as those looking for practice.
4.4 PROJECT MANAGEMENT
All projects in Afghanistan face similar difficult circumstances, including security risks, lack of infrastructure, a
limited pool of skilled local human resources, language, and cultural barriers. ALGAP’s nationwide scope and
focus on subnational governance presented particular challenges contributing to the lessons learned detailed
below.
4.4.1 Fly Without a Pilot
ALGAP initially considered prioritizing provinces, testing methodologies, and phasing in technical assistance
activities. Given the breadth and urgency of Afghanistan’s needs, however, and the volume of requests
received from all the provinces, provincial reconstruction teams, and others for the assistance, a “pilot”
approach was deemed unworkable. ALGAP thus committed to supporting all Provincial Councils equally, to
the limit that security restrictions allowed. Indeed, ALGAP initiated work with the provinces as it was still
developing its own staff and program.
In fact, the nationwide approach worked very well. No Council felt slighted and all received equal attention, if
not treatment (within the constraints of security issues). ALGAP’s nationwide presence gave it credibility with
the Councils and often with the governors.
While some implementing partners advocate “pilot testing” future approaches to supporting Provincial
Councils, it should be noted that the selection of a limited number of Provincial Councils for exclusive support
can have unintended, negative effects. It can lead to elitism among Councils, creating conditions that erode any
sense of nationwide pride, integrity, and identity among all Provincial Councils. Pilot approaches can also result
in protracted, if not interminable, debates about what works and what doesn’t work, at the expense of moving
forward with desperately-needed support to all Councils.
4.4.2 Recruit Locally
The project made a conscious and intentional decision to recruit and deploy province-based facilitators to
provide direct technical assistance to the Provincial Councils. In most instances the PBFs were from the
province in which they were assigned. This was a condition of employment, unless it was not possible to find
an adequately prepared person from a specific province.
This approach generally worked well for a number of reasons. First of all, given the security context in the
country, travel from Kabul to the provinces was difficult, and using individuals based in the provinces limited
the effect of those restrictions to a degree. More importantly, the PBFs generally were already known to and
respected by the Council members. This made it easy for the PBFs to establish working relationships with
them.
Admittedly, the pool of PBF candidates did not include many persons with the training and experience
necessary for the position. ALGAP had to invest heavily in building staff capacity by providing formal training,
on-the-job training, and mentoring. Even so, at initial hiring, PBFs were often barely a step ahead of those to
whom they were expected to provide technical assistance.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 19

4.4.3 Avoid Field-based Project Offices
PBFs initially worked part-time, and then later were converted to full-time employment. Their work required
them to interact directly and personally with the Councils. For a number of reasons, including prohibitive
costs, ALGAP opted not to establish field project offices for them. For one thing, such offices would have
highlighted the plight of the Councils who, in many cases, had no offices themselves. It would also have
provided an almost irresistible temptation to PBFs to “show up for work” at the project office rather than
reach out directly to the Councils. Even regional offices were deemed to be unacceptable since they would
detract from the intensive provincial attention that ALGAP was promoting.
On balance, though, this approach was not without its downside. ALGAP’s Kabul-based project personnel
found it difficult to supervise the PBFs. Communications with them were difficult (Internet and e-mail often
were not available or reliable). It was hard to know just where PBFs were spending their time and much had to
be assumed on faith. To plan and document their activities, PBFs had to make do without basic administrative
resources (e.g., computers, printers, e-mail) that we generally take for granted.
4.4.4 Proceed with or without a National Government Counterpart
Though ALGAP was an active participant and contributor to a working group on provincial governance, and
informed the government regularly of its activities, it had no officially-mandated national government partner
with which to work effectively. The Ministry of Interior’s interest, authority, and responsibilities for Provincial
Councils were vague, conflicting, and dysfunctional. As such, ALGAP could not look to them as a sounding
board for its activities, nor to build capacity for sustainable ongoing support. At one point, the newly-formed
Ministry of State for Parliamentary Affairs asserted that it had responsibility for the Provincial Councils. Only
recently, as ALGAP entered its final months of activity, the Office of Administrative Affairs was given formal
responsibility for supporting the Provincial Councils. If there is a lesson learned here, it is that desperate times
required desperate measures and ALGAP’s activities worked well, even without a government partner.
Looking more towards the future, the COP and this author both speculate that the independence of the
Provincial Councils may be at risk if they end up reporting directly to a national government body. This is a
point for USAID and other donors to consider in developing future support activities for the Provincial
Councils. Future assistance might be directed toward some sort of association of Provincial Councils should a
credible one be established at the Councils’ own initiative.
4.4.5 Build Capacity at District Levels
While they don’t yet have elected councils, districts nevertheless have some–– although generally very limited–
–governance structures and desperate needs for capacity building. ALGAP’s mandate and resources did not
fully reach to that level. It had to decline many requests for assistance that came from the districts.
Nevertheless, ALGAP’s workshops in particular, attracted a great deal of interest and attention from districtlevel
governance actors, both formal and informal, and they were included wherever possible.
Future support for subnational governance in Afghanistan should expand to include District Councils.
ALGAP’s experience with support to the Provincial Councils suggests strongly that candidates and voters
benefit from orientation to the roles and duties of Councils. 17 When elected, the Councils will need technical
assistance to acquire the capacity to fulfill their roles and perform their duties. When elections finally take place
17 An likely immediate need is an orientation and action planning workshop to fully take into account the new responsibilities and
opportunities presented by the revised Provincial Council Law. This could also be an outstanding opportunity to reinforce practices and
skills developed during the first year-and-a-half and to further develop understanding and cooperative working relations with provincial
governance actors.
20 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

at the district level, the Councils will require training and technical assistance similar to what ALGAP provided
to the Provincial Councils.
Civic education at the district level can help prepare the voters and candidates for a District Council in
advance of the elections.
4.4.6 Extend Support to Provincial Government Actors
The second round of highly popular consultation tours that ALGAP supported, specifically encouraged the
participation of provincial government actors (the governor and representatives of line ministries) in order to
foster good relations and a modus operandi with the Provincial Councils. Participation of these other actors in the
workshops and conferences helped build capacity overall, while fostering healthy working relationships.
4.4.7 Anticipate Need to Build Capacity Everywhere
However obvious this may seem, it nevertheless needs to be emphasized. Conditions for implementing
development projects in Afghanistan remain extremely challenging. Experienced, educated, and skilled human
resources are scarce and in great demand. Building this base will take many years. In addition to the need to
train staff almost from scratch, local subcontractors in Afghanistan also generally lack experience working in
any sort of business environment and have great difficulty complying with US government acquisition
regulations, negotiating reasonable contracts, and fulfilling contract terms.
4.5 GENDER
Gender refers to social and cultural roles assigned to males and females. While the focus is often on the roles
assigned to women, gender considerations apply to men as well. Gender is a cross-cutting consideration, for
project management as well as for project activity planning and implementation.
Development projects everywhere, whether intentionally or unintentionally, take either an active or a passive
approach to gender issues. An active approach will appraise and assess gender roles with regard to achieving
project objectives and, with thoughtful and proactive intention, design project activities to either preserve local
gender roles or to influence them in a definite manner. A passive approach will focus on project objectives
without specific regard to gender roles, accommodating local customs as necessary, and monitoring what, if
any, impact the project activities may have on them.
ALGAP’s project objectives did not include any specific gender-related aspects, and so the project took a
largely passive approach. This is not to say it was insensitive to gender issues, especially with regard to women
in Afghanistan. It would be hard to ignore the very high profile given to certain customs. The review of
ALGAP’s activities suggest that the project with its focus on participation, communication, and public service,
contributed to a trend of change in roles and customs related to both genders, while accommodating the
preservation of other customs.
4.5.1 Budget and Plan for Maharam
Maharam refers to a blood relative, usually a male member of a family, who may accompany female members
on activities away from home. Local custom, village mores, and an individual family’s choice may require that a
female have a maharam relative accompany her for certain or all activities outside the home. Obviously, this
would include overnight travel, but could also include daytime travel or occasions in which a woman is
required to be in the company of other men, or even just to be in public. The circumstances requiring maharam
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 21

is variable depending on the location in the country. Urban areas are not as strict as rural areas, with Kabul
possibly being the most lenient.
Projects in Afghanistan need to budget and plan for maharam both for female project staff and beneficiaries.
ALGAP budgeted for maharam to accompany female participants on consultation tours, as well as female
project staff who needed to travel. ALGAP’s personnel policy did not specifically address this provision, and it
proved difficult at times to know where to draw a line between accommodating maharam-related customs and
being exploited by them. A family may require that a maharam relative accompany a female member on her
travels, for example, but balk at the expense when the relative must then take time off from his job to do so. In
this case, the family may ask that the project compensate the relative for his time as well as cover his travel
expenses (a request ALGAP did not feel it could accommodate). Projects must also make careful decisions
such that the accommodation of maharam customs does not unintentionally promote or preserve the custom
against the wishes of a female staff member or activity participant.
4.5.2 Provide Gender Training for Project Staff and Activity Participants
Whether the project takes a passive or an active approach to gender in its staffing and activities, sensitivity to
the topic is important in the context of the tensions and transitions in Afghanistan today. By law, women play
a role on Provincial Councils.
In one case, a female Council member explained to the author that several of her fellow Council members
were former commanders who in the past enforced strict prohibitions against public activities of women. She
confessed to having been afraid of these individuals when she was forced to face them in person on the
Council. Much to her surprise and to her satisfaction, however, as well as the expressed satisfaction of these
former commanders, she has lost her fear of them and they have come to appreciate and recognize the
importance of women serving on the Council.
In another case, several female Council members when attending the first ALGAP workshop asked the
facilitator if they were supposed to actually sit in the same room with the men (contrary to local custom). The
ALGAP facilitator replied that to serve on the Council it did seem as if this would be both required and
acceptable. Both the men and the women on the Council chose for themselves to accept the change in custom.
Afghanistan’s own laws, including the Provincial Council Law, are taking active approaches to changing
specific gender-related customs, including eliminating forced marriages and the exchange of females for
settlement of disputes. Provincial Councils and government actors are requesting workshops specifically on
how to reduce violence against women and children in their communities.
22 AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW

5.0 CONCLUSIONS AND
RECOMMENDATIONS
Provincial Councils appear to be here to stay. While their roles and responsibilities and the mechanisms by
which they will work are still fluid and uncertain, they are––to one degree or another––functioning, and they
are becoming increasingly well-known among the general population. District and Village Councils are on
their way, having a constitutional mandate. These three entities, along with Municipal Councils, will constitute
subnational representative governance forces that will be an important balance to the strong central
government.
Provincial Councils are already playing a critical role in a number of areas, aside from the important function of
electing two-thirds of the Meshrano Jirga (when elected, District Councils will select one-third and Provincial
Councils will select one-third). This role includes conflict and dispute mediation and oversight of provincial
government activities.
Through a variety of training and technical assistance activities and a civic education campaign, USAID––
through the ALGAP project––has promoted the legitimate role of the Provincial Councils and helped to build
initial capacity by which they can fulfill it.
Subnational governance in Afghanistan is in transition, incorporating traditional mechanisms with more formal
government mechanisms. It is a chaotic and “messy” time. To a large extent, the government and the
international community cannot control it, nor predict how it will develop. The Afghans are demonstrating
both the willingness and ability to sort it out, in their own way and in their own time. To succeed, however,
their fragile new institutions will need long-term commitments from international partners to provide carefullydesigned,
negotiated, and coordinated assistance––both technical and material––tailored to their evolving
needs and capabilities.
Recommendation: Based on the encouraging results already obtained by ALGAP in an extremely short time
period, this report recommends that USAID capitalize on the important investment it has already made in
subnational governance, by pursuing its support of Provincial Councils, while advocating that they remain
independent of central government control. In this way, the Councils will also remain voices of their
constituents, as well as peaceful recourses for settling conflicts and disputes. The establishment of capable and
functional Provincial Councils would provide a strong model and anchor for the eventual establishment of
representative governance at other levels as well.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW 23

APPENDICES
APPENDIX A: BIBLIOGRAPHY
APPENDIX B: LIST OF INTERVIEWEES
APPENDIX C: PROVINCIAL COUNCIL LAW ARTICLE 4

APPENDIX A: BIBLIOGRAPHY
From the Afghanistan Research and Evaluation Unit (AREU http://www.areu.org.af)
• “A Guide to Government in Afghanistan,” Evans, Anne et al. 2004.
• “Caught in Confusion: Local Governance Structures in Afghanistan,” Lister, Sarah. March 2005.
• “Provincial Governance Structures in Afghanistan: From Confusion to Vision?” Lister, Sarah and
Nixon, Hamish. May 2006.
From Counterpart International’s USAID-funded Initiative to Promote Afghan Civil Society (I-PACS
http://www.counterpart.org)
• “Afghanistan Civil Society Assessment,” Ayrapetyants, Anika, Assessment Team Leader. May 2005.
• “How Afghans View Civil Society: Roundtable Discussion Report,” Fidai, M. Halim. February 2006.
“Formative Research for Civic Education Programs on Elections: Focus Group Discussions in the North,
West, Southeast, and South of Afghanistan” from Altai Consulting and The Asia Foundation with funding
support from USAID. August 2005. http://www.asiafoundation.org/pdf/AltaiTAFfinalreport.pdf.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW A-1

APPENDIX B: LIST OF
INTERVIEWEES
• Dawlat Rafiee, Deputy Governor, Baghlan Province
• Mahboobulah Mahboob, Director of Ministry of Economy Office, Baghlan
• Baghlan Provincial Council:
o Molawi Naqibulah Sajad, President
o Noorya Hamidi, Deputy President
o Shokrulah Ashrafyan, Member
o Shokria Asil, Member
o Habiburahman Jahed, Member
• Kunduz Provincial Council:
o Mawlawi Abdulah, President
o Haji Abdulah, Member
o Mohamad Jamal, Member
• Samangan Provincial Council
o Haji Sarajudin, President
o Sohaila Rahimi, Deputy President
o Haji Abdulah, Member
o Mulah Sheer Mohd, Member
o Almaskhan, Member
• Allan Freedman, Country Director, National Democratic Institute (NDI)
• Mohd Haroon Nasrat, Kunduz General Manager, NDI
• Jon L. Summers, PhD, Country Representative, The Asia Foundation
• Fazel Rabi Haqbeen, Senior Program Officer, The Asia Foundation
• Afzal Qayoumi, Civil Engineer; Chief of Party, International City Managers’ Association
• Tilly Reed, Chief of Party, Counterpart International
• Barbara Burroughs, Chief of Party, ARD, Inc.
• Kim Kim Yee, USAID Field Program Officer, Mazar-e-Sharif, Provincial Reconstruction Team.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW B-1

APPENDIX C: PROVINCIAL
COUNCIL LAW ARTICLE 4
Provincial Council Law Article 4––Principle Duties, Responsibilities, and Authority
of Provincial Councils
1. Participate in determining the development objectives of government such as economic, social,
health, education, reconstruction, and contribute to improve other affairs of the related province.
2. Provide consultation on effective usage of revenues of the province.
3. Participate in settlement of ethnic and local disputes through holding of correctional assemblies.
4. Provide consultation to design the development plan of province and anticipated plan before
proposing to government.
5. Participate actively and in possible ways in elimination of the customs and traditions contrary to
the law and Islamic Sharia such as forced marriages, exchange of females for settlement of
disputes, and efforts to ensure Human Rights.
6. Visit the areas lacking freedom by taking permission of related authorities, analyze and evaluate
the actions of law enforcement bodies, and provide related report to provincial administration.
7. Participate actively and effectively to ban the poppy cultivation, drug and narcotic production
and addiction to them by providing awareness regarding the danger of using the substances, and
attracting the cooperation of people and institutions involved in campaign against drugs.
8. Acquire information on the proceedings and work plan of the provincial administration and
related branches.
9. Appraise the development plan and annual expenditure process of provincial administration, and
provide report to the respective inhabitants of province through media.
10. Consult the inhabitants of province in general consultative meetings at least once every three
months, and the governor and related department authorities at least once a month.
AFGHANISTAN LOCAL GOVERNANCE ASSISTANCE PROJECT (ALGAP)––LESSONS LEARNED REVIEW C-1

U.S. Agency for International Development
1300 Pennsylvania Avenue, NW
Washington, DC 20523
Tel: (202) 712-0000
Fax: (202) 216-3524
www.usaid.gov