The National Area-Based Development Programme (NABDP) acknowledged the importance of involving communities in local development decision-making and created District Development Assemblies (DDAs) to connect villages with provinces through the initiatives.
Problems and Purpose
The foundation of community development programs and accountability is based on understanding communities' social and economic contexts and the issues they face. These programs, led by government and non-government agencies, aim to address these concerns in a people-centred and people-led manner, to improve living conditions. Fundamental questions such as who decides what is best for the community, who implements programs, and who is accountable for funding and allocation decisions are central to the success of community development programs. Furthermore, To understand community development programmes, it is vital to consider three dimensions: context, creation, and culmination. The context includes the community's challenges, background, strengths, and weaknesses. Creation involves developing specific programmes that address community issues with clear intentions, values, goals, strategies, and mechanisms. Culmination refers to how the programme achieves its goals, with clear identification of accountable people and processes. These three factors are interconnected and critical to the success of community development programmes.[i][4]
Despite some improvements since the end of the conflict, Afghanistan, during the republic government, experienced a pervasive sense of insecurity due to several factors. These included the prevalence of weapons in the hands of illegal armed groups, the continued presence of warlords, ongoing political conflicts, social violence, and a weak rule of law. It is widely recognized that poverty lies at the root of much of the violence that contributes to insecurity in the country. These conditions significantly hinder state-building, sustainable development, and peace in Afghanistan. The Afghan government implemented various programs and projects to address these challenges to improve national security. Different ministries, under their respective mandates, manage these initiatives.
The Ministry of Rural Rehabilitation and Development (MRRD) overseeded several national development programs, including the National Area-Based Development Program (NABDP). Launched in 2002 as a collaboration between the MRRD and the United Nations Development Programme (UNDP), the NABDP aimed to reduce poverty and sustainably improve the lives of rural Afghans. The third phase of the program, which began in July 2009, focused on three main areas: (i) establishing local governance and institutionalizing DDA, (ii) enhancing sustainable livelihoods through rural infrastructure services, and (iii) promoting economic stability.[ii][5]
[i] A. Malathi. Community development Program and Accountability. Delhi: Delhi University: https://egyankosh.ac.in/bitstream/123456789/59006/1/Unit5.pdf
[ii] UNDP and MRRD. Conflict Mapping/analysis;he National Area Based Development Program. (NABDP) ;Community based Impact Assessment and Conflict mapping and analysis in Afghanistan. 2010: https://www.archnet.org/publications/9063
Background History and Context
The National Area-Based Development Programme (NABDP) was launched in 2002 as a joint effort between the Ministry of Rural Rehabilitation and Development (MRRD) and the United Nations Development Programme (UNDP). The program aimed to reduce poverty and improve livelihoods by focusing on local institutions, productive infrastructure, and reintegration. NABDP's third phase (2009-2015) saw the re-establishment of eight District Development Assemblies (DDAs) and the creation of a DDA in a new district. By the end of 2015, DDAs had been established in 389 districts. While there is uncertainty about the future of these DDAs after NABDP closes, some may become official District Coordination Councils (DCCs).
In 2015, NABDP successfully implemented approximately 1001 infrastructure projects that improved the lives of 175,941 households. These projects provided better access to electricity, transportation, safe water, public buildings, irrigation, and disaster mitigation measures. The projects were designed to meet local needs and were implemented through DDAs and Community Development Councils (CDCs). The CDCs and DDAs also played an active role in monitoring at least 104 projects. Additionally, the construction of these infrastructures created temporary employment opportunities for community members.
The NABDP recognized the importance of involving communities in the decision-making process for local development. As a result, they have established District Development Assemblies (DDAs) to bridge the gap between villages and provinces. Afghanistan has 34 provinces and 4031 districts, with most districts having over 50 communities. At the community level, the National Solidarity Programme (NSP), implemented by MRRD, has established Community Development Councils (CDCs) in 85% of settlements with at least 25 families. CDCs have involved community members in identifying local needs and facilitating development projects to address them. CDC members were invited to stand for DDA elections to build on their success. DDAs communicated the collective needs of villages to higher-level government and development agencies and helped coordinate large-scale development projects, especially those covering multiple villages.[i][3]
[i] UNDP. NABDP 2015 Annual Report: https://policy.asiapacificenergy.org/sites/default/files/NABDP-APR-2015.pdf
Organizing, Supporting, and Funding Entities
The NABDP programme has a total budget of US$157 million. In 2003, it received funding from various countries and organizations, including Italy (US$10,983,367), Malaysia (US$500,000), Canada (US$5,150,727), Japan (US$1,854,000), the UK (US$1,562,500), USAID (US$5,000,000), Sweden (US$2,910,361), the EC (US$339,875), UNHCR (US$161,410), and UNDP (US$1,100,000). .[i]
[i] The Ministey of MRRD, What MRRD Dose? Aprile, 2014: http://www.pdffactory.com/
Participant Recruitment and Selection
The NABDP initiative was carried out in two different ways by MRRD and UNDP, with the help of UNOPS, FAO, and UN-Habitat. It stood out from MRRD's other programs because it allowed resources to be allocated based on local needs and the availability of other program resources. The main goals of NABDP were to achieve results, build capacity, and enhance the skills and resources of MRRD and RRD provincial offices through staff training, financial and material support, and system development. .[i][2]
In areas covered by the NSP, democratically elected Community Development Council (CDC) members represent their villages to stand for DDA elections held by NABDP. DDAs formed due to this process are called “Permanent DDAs.”In areas not covered by the NSP due to insecurity, NABDP relies on the district governor to identify suitable candidates for DDAs. Such DDAs did not undergo an election process and are regarded as “Interim DDAs.” In permanent DDAs, 1/3 of the seats were reserved for female candidates. NABDP required each CDC to have one male and one female candidate; when there were not enough female candidates, the reserved seats remained unoccupied. However, most interim DDAs had no female members due to the security situation and constraints on women. Members were re-elected every three years to ensure that DDAs remained active and representative. NABDP facilitates and oversees election processes by briefing candidates on the procedure, organizing voting and verifying results.
Before developing DDPs, the NABDP facilitator team coordinated with stakeholders such as governors, UN agencies, and international NGOs to gather information about their priorities. They also obtained secondary information about the population, socioeconomic infrastructure, and resources from relevant districts. This information was then presented to DDA members to aid them in making informed decisions.
Once the plan was created, it was shared with the district governor and provincial office of MRRD for further distribution. DDAs were encouraged to proactively share DDPs with potential donors, and UNDP has been regularly utilizing DDPs in their project development.[ii][3]
[i] The Ministey of MRRD, What MRRD Dose? Aprile, 2014: http://www.pdffactory.com/
[ii] UNDP. NABDP 2015 Annual Report: https://policy.asiapacificenergy.org/sites/default/files/NABDP-APR-2015.pdf
Methods and Tools Used
The National Area-Based Development Program (NABDP) planned to decentralize its implementation process to enhance service delivery and community coordination across Afghanistan's 34 provinces. This was successfully tested in "The Kandahar Model," administrative and technical teams have been assigned to most of NABDP's units. To ensure transparency and accountability for infrastructure projects, civil engineers were appointed as Field Monitoring Officers (FMOs) through the Monitoring, Evaluation, and Reporting Department (MERD).
NABDP made a conscious effort to involve local communities in implementing their projects. Out of the total contracts, 79 were directly contracted to CDCs and 25 to DDAs. This approach gave ownership to the communities and provided employment opportunities. Private companies were contracted for larger and more complex projects, which employed local labour, both skilled and unskilled, to work on the construction sites.[i][1]
[i] UNDP. National Aera-based development program. 2015 first quarter project report: https://www.undp.org/sites/g/files/zskgke326/files/migration/af/NABDP-1QPR-2015.pdf
What Went On: Process, Interaction, and Participation
The program allowed government officials, Emergency Loya Jirga delegates, and local leaders to plan for each province in the country and identify more than 1,500 key priority projects in all districts. Of these, 317 sub-projects worth over US$17.9 million have been implemented in 32 provinces through UN agencies, such as FAO, UN-Habitat, UNOPS, NGOs, and private sector businesses. The projects aimed to immediately improve the areas of agriculture, building construction, education, health, income generation, irrigation, livelihood, rural development, shelter, transport, water supply, and public administration. NABDP played a crucial role in the institutional reform and strengthening of MRRD by providing human and financial capital. The program allowed the ministry to reform its mandate, policies, and structures at national and provincial levels and develop new programs relevant to the nation.[i][2]
The NABDP offered training to DDA members on various topics, including governance, conflict resolution, gender equity, project planning, implementation, management, procurement, and financial management. These trainings helped DDAs to lead development processes in their respective districts effectively. Additionally, NABDP provided specialized training on disaster risk management and other specific activities.
Afghanistan is susceptible to various natural calamities such as earthquakes, floods, droughts, landslides, and avalanches. In order to mitigate the impact of these disasters, NABDP determined the districts that were prone to them and imparted disaster management training to the relevant DDAs. The members were trained to create disaster management plans and execute disaster risk reduction projects.[ii][3]
[i] The Ministey of MRRD, What MRRD Dose? Aprile, 2014: http://www.pdffactory.com/
[ii] UNDP. NABDP 2015 Annual Report: https://policy.asiapacificenergy.org/sites/default/files/NABDP-APR-2015.pdf
Influence, Outcomes, and Effects
The NABDP program has played a crucial role in reforming and strengthening the MRRD institution. It provided financial and human capital, enabling the ministry to reform its policies, mandate and structures at the national and provincial levels. Additionally, they developed new programs that align with national priorities. The program has also extended this support to other ministries at both national and provincial levels. A feasibility study was conducted to evaluate macroeconomic regeneration projects, particularly the Spinzar Cotton Gin in Kudzu. This study included scenarios for further operation of the Gin in the context of the government's privatization laws, which were discussed with the Minister of MRRD, Light Industries, and the Chairman of the Privatization Commission. .[i][2]
389 District Development Assembly (DDAs) have been established nationwide to encourage community involvement in local development and decision-making. Eight DDAs have been reformed, and one new DDA has been established. In addition, government officials and 708 DDA members have been trained in project management, disaster mitigation, and resource mobilization. To help increase economic stability and social standing, 15 livelihood training have been conducted for 485 women, which include carpet weaving, tailoring, and handicrafts. Furthermore, 16 micro hydro and one solar power project have been carried out, providing power to over 3,948 rural homes in a more cost-effective and environmentally friendly way. Additionally, 16 roads and bridges have been constructed, connecting 66,770 households to markets, clinics, schools, and other essential services.
Over the years, several infrastructure projects have been implemented to benefit several households differently. Thirteen water reservoirs and canals were constructed to irrigate land and increase agricultural productivity for 2,598 households. Additionally, 4,114 households now have access to safe water, dramatically reducing the risk of water-borne diseases, thanks to nine water reservoirs and wells. Twenty flood protection walls were erected to reduce damage from natural hazards such as earthquakes, floods, droughts, and landslides, benefiting 29,441 households.
Nine schools and clinics were built to improve community life and provide better access to health and education facilities for 21,595 households. Furthermore, 17 reintegration projects were implemented, which employed ex-combatants in construction work to help them reintegrate into communities and benefit 49,833 households.
The construction of these infrastructure projects has created 576,816 labour days, which is an excellent economic boost. All infrastructure projects under outputs 2 and 3 and WEEP projects have benefited 175,941 households. Overall, these projects have positively impacted many people's lives, and the benefits will be felt for years to come.[ii][3]
[i] The Ministey of MRRD, What MRRD Dose? Aprile, 2014: http://www.pdffactory.com/
[ii] UNDP. NABDP 2015 Annual Report: https://policy.asiapacificenergy.org/sites/default/files/NABDP-APR-2015.pdf
Analysis and Lessons Learned
Numerous conflicts and land disputes in various communities have caused significant delays in the completion of infrastructure projects. To help resolve these issues, NABDP provided conflict resolution training to improve the capacity of DDAs. For instance, the construction of an MHP in Baghlan province's Pol-i-hear district affected by land disputes. Community members had prevented engineers from accessing the site to continue their work. To address this problem, DDA members were consulted, and it was agreed that the company installing the MHP would acquire the necessary equipment, and access to the site would be granted. Moreover, in all targeted areas, the capacity of DDAs/CDCs to effectively implement projects was low. However, NABDP overcame these challenges by coordinating with communities, field staff, and local governors through DDAs/CDCs. Moreover, NABDP conducted a training session for DDA members to enhance their operational capacity.
Afghanistan's security situation deteriorated since the 2015 presidential election and the formation of the Unity Government. As a result, increased security incidents and movement restrictions throughout the country caused delays in planned work and difficulties accessing project sites.
Despite these challenges, NABDP implemented an effective mitigation strategy by working closely with local communities to prioritize and implement projects that were important to them. Through community ownership and management, rural development projects have gained high acceptance and legitimacy among local communities. As a result, NABDP could continue implementing crucial district-level development projects, although the implementation has slowed down.
In previous quarterly and annual reports, it was reported that only a limited number of companies could offer the specific services needed for certain projects, particularly in the supply and installation of micro hydro equipment. This shortage of suitable companies often delays project implementation and tensions between companies and communities due to delayed completion of planned activities. To address this issue, NABDP worked to support and develop the micro hydropower sector in Afghanistan, which has tremendous potential as an alternative and renewable energy source. However, additional capital investment and support to the private sector were necessary to grow this fledgling industry. The Inter-ministerial Commission on Energy (ICE) discussed the challenges private investment faces for rural energy sector development, and a policy was drafted to address these issues.
In some cases, smaller infrastructure projects were managed more efficiently and with higher quality when contracted directly to CDCs or DDAs instead of private companies. The effectiveness of the CDCs and DDAs and the inclusiveness of project planning played a role in this outcome. The democratic nature of these organizations also helped with oversight and community ownership, reducing the chance of corruption. While DDAs and CDCs were not primarily responsible for project implementation, their ability to oversee procedures and ensure quality execution should be encouraged. Additionally, in 2015, several CDCs and DDAs increased their capacity for development project implementation due to previous experience and training. Investing in their capacity-building is likely to have long-term benefits.
The project successfully involved and encouraged women to participate in decision-making processes in general. However, the low participation of women in DDAs during the first quarter highlighted the challenges they faced. Despite the project's efforts, identifying women willing and able to participate in DDAs could be difficult, especially in regions where social barriers hindered their involvement.
After consulting with the participants in NABDP's gender empowerment projects, it was found that there were not enough markets or opportunities for women to sell their handicrafts outside of their communities. NABDP collaborated with UNDP's GEP project to address this issue to find potential markets and explored partnerships with NGOs like the Aga Khan Foundation to establish market enterprises for community-made products.
While women were involved as members and participants in some DDA and WEEP projects, gender has not been a consistent theme across all projects. Unfortunately, most projects have not made an effort to engage women actively.
There were several ways in which infrastructure projects could have included women:
1. By involving women in needs assessment and project design
2. By hiring women for less physically demanding tasks
3. By involving women in project management and maintenance
The lack of female involvement in some projects has impacted their sustainability. For example, some water supply projects only involved male community members in raising awareness about maintenance needs, even though women are often the primary users of these facilities.
In order to ensure the success and sustainability of infrastructure projects, it is essential to involve women at all stages of the process actively.
Lastly, During the implementation of community projects, conflicts over land use, especially with MHP projects, were a significant issue. To address this, NABDP realized the significance of obtaining formal approval by utilizing participants' fingerprints in the presence of DDA members, community elders, and the District Governor before starting any project. Furthermore, NABDP ensured that appropriate government officials, such as DDA members, District Governors (DGs), and Provincial Governors (PGs), participated in these disputes to assist in finding a satisfactory resolution. These experiences taught us valuable lessons on managing community conflicts over land use in the future.[i][4]
[i] UNDP. National Aera-based development program. 2015 first quarter project report: https://www.undp.org/sites/g/files/zskgke326/files/migration/af/NABDP-1QPR-2015.pdf
See Also
http://www.secheresse.info/spip.php?article38757
References
[1]UNDP. NABDP 2015 Annual Report: https://policy.asiapacificenergy.org/sites/default/files/NABDP-APR-2015.pdf
[2]The Ministey of MRRD, What MRRD Dose? Aprile, 2014: http://www.pdffactory.com/
[3]UNDP. National Aera-based development program. 2015 first quarter project report : https://www.undp.org/sites/g/files/zskgke326/files/migration/af/NABDP-1QPR-2015.pdf
[4]A. Malathi. Community development Program and Accountability. Delhi: Delhi University: https://egyankosh.ac.in/bitstream/123456789/59006/1/Unit5.pdf
[5] UNDP and MRRD. Conflict Mapping/analysis; The National Area Based Development Program. (NABDP) ;Community based Impact Assessment and Conflict mapping and analysis in Afghanistan. 2010: https://www.archnet.org/publications/9063