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Afghan Cabinet: Nominate First, Screen Later

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Just under two weeks ago, it appeared that one of the final hurdles in getting the Afghan government functioning after the disputed election may have been cleared, as a full slate for the cabinet was announced. Sadly, even though Ashraf Ghani and Abdullah Abdullah took over three months to come up with the list of nominees to run their “Unity Government”, it is clear that no screening of these candidates took place, as many are now falling by the wayside. One turns out to have an Interpol red notice, as many as eleven may have dual citizenship (a direct violation of the Afghan constitution) and one may not meet the minimum age requirement.

Rod Nordland describes some of the problems that have been encountered:

Choosing the Afghan cabinet is to government what the national sport of buzkashi is to polo: a wild and woolly version with uniquely local characteristics and notably more carnage.

President Ashraf Ghani’s presentation of new cabinet nominees to Parliament on Tuesday was a case in point. One proposed nominee had just pulled out after revelations of an Interpol warrant for his arrest. Another dropped out, complaining that he did not have enough money and jobs to bribe Parliament into approving him. A third was subject to a social media smear campaign alleging that she had just gotten a new identity card so she could add a few years to her age to qualify for the job.

Several other would-be ministers were reportedly headed to the exits before Parliament got a chance to vote on them, as revelations tumbled out about dual citizenships, frowned on by the Afghan Constitution, or even, in one case, allegedly not being fluent in any national language.

It’s impossible to make this stuff up. Nordland continues:

“The candidate for rural development studied urban development, and the candidate for urban development studied rural development,” said Ramazan Bashardost, an anticorruption crusader and member of Parliament, famous for his outspokenness.

Corruption is running rampant in the confirmation process:

A more prominent nominee, Jilani Popal, a well-regarded former government official, withdrew his name from nomination as finance minister. While he is believed to have dual United States and Afghan citizenship, Mr. Popal told friends that he had pulled out when members of Parliament asked him for a total of 400 jobs in exchange for their votes, most of them in the lucrative customs service, leaving him with no slots for unstained candidates.

We get more on bribes from ToloNews:

However, a number of MPs have told TOLOnews that presidential advisor Mohammad Akram Akhpalwak has made promises of gifts to lawmakers if they vote in favor of the nominees. MPs said they had been promised IPHONE 6 mobile sets and 5-10,000 USD. Mr. Akhpalwak has meanwhile rejected the allegations.

That same ToloNews article informs us that seven of the nominees believed to have dual citizenship have been rejected by the Foreign Affairs Commission of Parliament. But over at Khaama Press, we learn that the rejection was quite the event:

The Lower House of the Parliament – Wolesi Jirga on Thursday witnessed brawl among the lawmakers over the issue of cabinet nominees holding dual citizenship.

/snip/

In the meantime, a number of the lawmakers insisted that the nominees holding dual citizenship should also be called in the session so that they can present their plans.

The lawmakers said the cabinet nominees have signed documents to surrender their second citizenship and the decision to reject the nominees with dual citizenship was not taken by the house of representatives.

Brawl among the Afghan lawmakers started after MP Shukria Barekzai critized the recent decision by joint parliamentary commission to reject the nominees insisting that the Parliament House is not authorized to deprive the rights of an Afghan national from election and voting.

The article goes on to describe a pathway through which the nominees might be brought back into eligibility. Given the slow, argument-filled route that has brought the Afghan “government” to its present state, I wouldn’t expect these questions about potential cabinet ministers to be resolved any time soon.

SIGAR Finds Huge Problems With $300 Million Afghan National Police Payroll

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SIGAR, the Special Inspector General for Afghanistan Reconstruction, has released a report (pdf) describing very disturbing problems with salaries for the Afghan National Police. The report concludes:

The U.S. government is spending more than $300 million annually for ANP salaries with little assurance that these funds are going to active police personnel or that the amounts paid are correct. ANP identification cards with unique numbers are the primary control mechanism to help protect against fraud and abuse, but they are not being used properly—including for attendance and payroll purposes—and there are almost twice as many cards in circulation as there are active police personnel. Further, after 9 years of effort, an electronic human resources system—critical for ensuring the proper personnel are being paid and paid the correct amount—has still not been successfully implemented. Despite lengthy and costly U.S. government attempts to implement this system, AHRIMS, and a payroll system, EPS, the two systems are still not integrated. This lack of integration serves to negate critical controls, such as the ability to reconcile personnel between systems, that should be in place to protect U.S. salary funding from waste and abuse. It is not surprising, therefore, that reports have disclosed inflated police rosters, payments being made to more police personnel than are authorized in particular locations, and police personnel receiving inflated salaries. Achieving full functionality and integration of these systems would only partially resolve existing problems. Such improvements would still not address concerns about low-level ANP attendance procedures or the integrity of the data once it leaves EPS for final salary payment calculations. Also of concern is the payment of ANP personnel in cash via trusted agents, as there are even fewer controls over these salary payments. The fact that as much as half of these payments are possibly diverted from intended recipients is alarming.

The U.S. government and international community plan to continue funding ANP salaries. Some requirements to help safeguard U.S. funds are in place, but neither CSTC-A nor UNDP are fully following them. U.S. Forces-Afghanistan (USFOR-A) should enforce these requirements and—where there are accountability gaps—create new, binding procedures to better safeguard funds. USFOR-A, UNDP, and the MOI must do a better job of coordinating to ensure that ANP personnel numbers match on-the-ground realities and that their salaries are accurate and provided only to actively serving Afghan forces.

We learn from the report that the flawed ANP identification card program was developed by DynCorp, but I don’t see in the report where the equally flawed AHRIMS and EPS programs came from. The fact that after 9 years of trying, we still don’t have a basic system for “taking attendance” for ANP personnel on the job is staggering. As a result, the system is still rife for corruption at all levels as ghost employees can be put on the roles and their salary embezzled. Here is more detail on the corruption enabled by part of the payroll being disbursed in cash:

SIGAR found that nearly 20 percent of ANP personnel are at risk of not receiving their full salaries because they are paid in cash by an MOI-appointed trusted agent, a process that lacks documentation and accountability. CSTC-A and UNDP officials told SIGAR that there is limited oversight of trusted agents and a higher risk that funds may be subject to corruption. Further, CSTC-A reported that corrupt practices within the trusted agent system of salary payments “could take as much as 50 [percent] of a policeman’s salary.”

On a separate but highly related front, Afghanistan finally has announced the full roster of nominees for its cabinet. This move will fill 27 positions. Conveniently, TOLONews has broken those nominees down by where they came from. Thirteen were nominated by Ashraf Ghani and twelve by Abdullah Abdullah. Two are “neutral”, the head of security (who carries over from the previous government) and the head of the banking system.

Returning to the problems in the SIGAR report, ANP falls under the Ministry of the Interior, whose new leader, nominated by Abdullah Abdullah, will be Noor-ul-haq Ulumi. He is a former general as well as having served in the lower house of Afghanistan’s Parliament. He will face quite a challenge in implementing the changes that SIGAR suggests in its report.

Afghanistan Misses Deadline for Cabinet Formation

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Back in September, I called the final agreement between Ashraf Ghani and Abdullah Abdullah a graft-sharing agreement when it paved the way for Ghani to take office as President while Abdullah would assume the extra-constitutional and John Kerry-created role of Chief Executive Officer. An arbitrary deadline of 45 days had been set for establishing the new cabinet based on the divvying-up of departments under the September agreement. However, as with everything in this painful process, the deadline has passed and there is scant evidence of progress.

ToloNews summarizes the situation:

The 45-day period President Ashraf Ghani hoped it would take to form the new cabinet ended on Thursday without an announcement of appointments. The spokesman for Chief Executive Officer Abdullah Abdullah said that while full agreement on the look of the government’s top leadership remains elusive, at least some of the cabinet will be formed prior to the London Conference in early December.

Though the spokesperson for the CEO and those close to the president have indicated the negotiations over the National Unity Government’s cabinet have been time-consuming and arduous, they have disputed rumors that there are major disagreements.

Ghani and Abdullah were said to have had a long meeting Wednesday night, perhaps in hopes of making a last-minute deal before the deadline expired, but concluded it without any suggestion of progression.

After quoting a few more sources providing a rosy picture of “progress” toward developing a cabinet, the article ends with this:

Other sources on condition of anonymity have said that there are still serious differences between Ghani and Abdullah over the new cabinet and so far the two sides have only agreed on general power sharing principles.

That doesn’t sound very promising at all.

At the New York Times, Rod Nordland adds to the pessimism:

Some Western diplomats are worried that continued disagreements between Mr. Ghani and his election rival, Abdullah Abdullah, in forming a unity government could push completion of a cabinet to the end of the year or beyond. That is a troubling state of affairs after a protracted election that had already consumed most of the rest of the year.

One diplomat thought that even seating a cabinet by year’s end was optimistic. “By the end of which year?” he said, “Gregorian or Persian?” The Persian year, which Afghanistan uses, ends on March 20.

Given the history of the electoral battle between Ghani and Abdullah, I wonder if even March is too optimistic. Perhaps in June John Kerry will put a cabinet in place by decree…