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

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.

SIGAR: Widely Cited 352,000 ANSF Force Size Is Not Validated

The January 2013 Special Inspector General for Afghanistan Reconstruction report has been out for some time now, but @SIGARHQ has still been tweeting about it regularly. One of their tweets yesterday brought my attention to the section of their report (pdf) where they discuss force size for Afghan National Security Forces. Since the interruption in training brought about by decreased interactions between US and Afghan forces during the  massive outbreak of green on blue attacks, I have maintained that the claim of 352,000 for ANSF force size was no longer credible. It appears that my skepticism is well-founded, as the pertinent section of the SIGAR report bears this heading:

ANSF NUMBERS NOT VALIDATED

The section begins:

Determining ANSF strength is fraught with challenges. U.S. and coalition forces rely on the Afghan forces to report their own personnel strength numbers. Moreover, the Combined Security Transition Command-Afghanistan (CSTC-A) noted that, in the case of the Afghan National Army, there is “no viable method of validating [their] personnel numbers.” SIGAR will continue to follow this issue to determine whether U.S. financial support to the ANSF is based on accurately reported personnel numbers.

There are several important bits to unpack in that paragraph. First, note that even though the US (well, officially, NATO) is training the Afghan forces, it is the Afghans themselves who report on their force size. It appears that our training of the Afghans, however, has not trained them on how to count personnel in a way that can be validated. But the end of the paragraph is the kicker, because it appears that our financial support of the Afghans is based on their own reporting of the force size. Since we are paying them for the force size they report, why wouldn’t they inflate the numbers to get paid as much as possible? The Afghans know that the bulk of US policy is built around the 352,000 force size myth, so they know that there will be absolutely no push-back (aside from an obscure SIGAR report that only DFH’s will read) for inflating the number to get the result the US desires. For further enticement, recall that NATO has proposed extending the time over which a force size of 352,000 will be supported, in a move that I saw as a blatant attempt to dangle an additional $22 billion ready for embezzling in front of Afghan administrators.

It comes as no small surprise, then, that SIGAR has found that the Afghan-reported numbers somehow manage to include over 11,000 civilians in the reports for security force size that is specifically meant to exclude civilian personnel.

A related area in which SIGAR has found a disgusting level of dishonesty is in how the US goes about evaluating Afghan forces in terms of readiness. Because it became clear to the trainers in 2010 that they had no hope of achieving the trained and independent force size numbers that NATO planners wanted (and because SIGAR found that the tool they were using at the time was useless), they decided that the only way to demonstrate sufficient progress was to redefine the criteria for evaluating progress. From the report: Read more

Lethal Events in Afghanistan Become Even More Difficult to Decipher

Events on Wednesday, Thursday and early Friday in Afghanistan stand as a stark reminder that killings now take place for such a variety of reasons and by such a variety of groups that assigning blame and motivation becomes extremely difficult.

The dead include two British troops and one Afghan soldier on Wednesday, two American servicemembers  in one Thursday event and three Afghan policemen in another, and a large number of Afghan police, soldiers and civilians early on Friday. It would appear that the killing of the US soldiers is the event best understood at this point. From AP in the Washington Post:

 A man in an Afghan police uniform shot and killed two American service members Thursday, in what appeared to be the latest in a rash of attacks on international forces this year by their Afghan partners.

/snip/

In Thursday’s shooting, authorities had yet to determine if the attacker was an Afghan police officer or an insurgent who had donned a uniform to get close to the Americans, said Maj. Lori Hodge, a spokeswoman for U.S. forces in Afghanistan. The assailant escaped after killing the service members while they were out on a late morning patrol in the southern Uruzgan province, she added.

This same article goes on to partially describe the deaths of the two British troops:

It was the second suspected insider attack in two days. On Wednesday, two British service members and an Afghan police officer were killed in an “exchange of gunfire” in Helmand province, the British Ministry of Defense said in a statement. The Afghan officer was not wearing his uniform and the statement said it was not clear who started shooting first.

There appears to be considerable disagreement at this point on just what took place in this encounter. Afghanistan’s Khaama Press has two articles released a little over three hours apart that provide very different explanations. From the first article:

The pair are thought to have been killed by insurgents, though the BBC said an Afghan source claimed the deaths were from a “green on blue” attack – where coalition troops are killed by their Afghan allies.

The later article provides a very different description:

According to local authorities in southern Helmand province of Afghanistan, British troops based in southern Helmand province killed two of their comrades in a friendly fire in this province.

Provincial security chief spokesman Farid Ahmad Farhang confirming the report said the incident took place in Greshk district while British troops were patrolling in the area.

Mr. Farhang further added, “A group of British troops opened fire on an Afghan national police and killed him.”

He said, “British troops were then attacked by a group of other British soldiers who were also patrolling in the area, killing two service members.”

The first description describes the British deaths as from insurgents or as green on blue. The second description first says there was a blue on green killing followed by blue on blue friendly fire. BBC is still agnostic on this event, choosing to quote ISAF: Read more

Confusion Rules in Afghanistan

Still steadfastly refusing to admit publicly that its Afghanistan strategy has failed completely and that a new, more rapid timetable for withdrawal must be developed before the November election, the Obama administration and its Department of Defense are reduced to utter confusion in trying to understand the sources of attacks on coalition forces. After halting most joint US-Afghan operations in the middle of September, Defense Secretary Leon Panetta led efforts last Thursday to claim that joint operations had returned to “nearly normal” levels while claiming that each joint operation would be evaluated carefully to reduce risks. It took less than two days for that evaluation process to be shown to be useless, as two Americans and three Afghan troops were killed in an exchange of gunfire while out on joint patrol.

The investigation into this event stands as a microcosm of the confused state of affairs in Afghanistan as the US struggles to understand that resistance to the presence of US forces now spreads through virtually all of Afghanistan and that uniforms for Afghan security forces are a tool for getting close to US targets. The military first announced Saturday’s attack as a green on blue killing and then backed off, claiming for a while that perhaps insurgents who were not a part of the joint patrol fired first and that US forces fired on the Afghan forces out of confusion. Yesterday, the Washington Post published details from a leaked report that suggests that it was indeed a member of the Afghan National Army platoon in the joint patrol who first opened fire and that he was quickly joined by other members of his patrol. Despite all of the accumulating evidence that Aghans resent our presence in the country, defense officials express surprise and confusion that multiple members of an Afghan patrol could all turn their weapons on US forces:

Two days after the U.S. military resumed joint operations with Afghan security forces last week following a spate of “insider attacks,” a platoon of American soldiers stopped at an Afghan army checkpoint in a volatile eastern province.

The Americans had a cordial conversation and cracked a few jokes with their Afghan comrades during the Saturday afternoon patrol in Wardak province. The Afghans offered the Americans tea. Then, according to a U.S. military official, an Afghan soldier, without warning or provocation, raised his weapon and opened fire — mortally wounding the senior American on the patrol.

In a war in which insider attacks have become commonplace, what happened next made the incident extraordinary, the American official said. Another Afghan soldier at the checkpoint opened fire on the Americans, killing a U.S. civilian contractor and wounding two other American soldiers. Soon, Afghan soldiers and possibly insurgents began firing at the Americans from several directions.

/snip/

A preliminary military report, however, has concluded that the gunfight began only after an Afghan soldier opened fire on U.S. troops, according to the American official, who spoke on the condition of anonymity.

“What sets this apart is that there were multiple attackers from multiple positions and there was zero provocation,” said the official, who had access to the report but was not authorized to speak for the record. Read more

Panetta Continues to Ignore Reality, Calls Surge a Success

Defense Secretary Leon Panetta looks as though he is going to be the last person on the planet to realize what a failure US strategy in Afghanistan has become. Today, while visiting New Zealand, he announced that the final surge troops have left Afghanistan, returning troop levels to 68,000 from a high of 101,000 at the peak of the surge President Obama ordered at the end of his first year in office.

The Washington Post set Panetta’s “success” language apart from other comments:

“There’s no question there will continue to be difficult days ahead in this campaign,” Panetta said at a news conference in Auckland, where he was making a visit, in part, to thank New Zealand for its contribution of about 180 troops to the NATO-led coalition in Afghanistan. “But this is an opportunity to recognize that the surge did accomplish its objectives.”

The New York Times gave a bit more of Panetta’s statement:

“As we reflect on this moment, it is an opportunity to recognize that the surge accomplished its objectives of reversing Taliban momentum on the battlefield, and dramatically increased the size and capability of the Afghan National Security Forces,” Mr. Panetta said.

It’s not until the very end of the article however, where we learn that Panetta’s claims don’t hold up:

However, the level of violence remains higher than it had been before the surge forces came. In the first six months of 2012, for instance, 1,145 civilians were killed, compared with 1,267 in the same period of 2010, when surge forces were only just arriving.

How can it be that the Taliban’s momentum has been reversed if civilian deaths are now higher than before the surge? [Correction: as pointed out by harpie in comment number 1, although the Times says violence levels are higher after the surge, the civilian death rate post-surge is slightly lower rather than slightly higher.]

Besides allowing Panetta to deny the reality of a Taliban that has lost no strength, the Times article article allows an anonymous military spokesman to lie about changes in the size of Afghan security forces during the surge:

“What did the surge give us?” a senior American official reflected on Friday. “We’re going to hit a point where, I won’t say that’s as good as it gets, but now it’s up to them to hold what we gave them. Now really it’s Karzai’s turn.”

The official spoke on condition of anonymity as a matter of military policy.

The surge brought American troops to a high of 101,000, along with as many as another 50,000 coalition troops, mostly from NATO countries. Over the past three years, the increase in American troops helped to enable an accelerated training program, the senior American official said, with the Afghan police and army more than doubling in number by this year, to 300,000.

Two things stand out immediately in the numbers supplied by the anonymous spokesman. First, until this statement, all recent stories have been referring to the size of the ANSF as 350,000. How did the number drop by 50,000? Is this a result of the re-screening that Afghanistan has been carrying out? This chart shows that the Afghan National Army, which accounts for about two thirds of the ANSF, saw a maximum attrition rate of just under 5600 in one month, so attrition alone cannot account for this large drop. [Note: I noticed when I checked the article again after 2 pm that the 300,000 number has been revised to 350,000. There is no indication within the article or at the usual slot at the bottom of the page where corrections are usually noted that this change has taken place. I had already pointed out that the military source was lying whether we used 300,000 or 350,000 as the current ANSF level.]

But the other thing that stands out in this anonymous statement is an outright lie. The official claims that during the surge, the ANSF “more than” doubled to 300,000. This Brookings publication (pdf) documents force size for the ANA and ANP, and it shows that in December 2009, when Obama ordered the surge, the force size was 195,089. If we use the source’s 300,000 figure for the current size, the current force is only 1.54 times the previous size, not more than twice. Even if we use the 350,000 figure that was used in all previous statements, the ratio only improves to 1.79, still well below twice the original size.

The military can lie all it wants, but it still cannot hide its failures in Afghanistan.

Beginning of the End in Afghanistan? Most Joint Operations Below Battalion Level Suspended

In the most significant move yet that suggests the NATO plan for Afghan security forces to take over as NATO withdraws from Afghanistan by the end of 2014 has failed, the US has halted most joint activities between US and Afghan forces below the battalion level. Any joint action at the lower force level will require approval from a General before it is permitted. Because the bulk of the training and joint patrol work of US and Afghan forces occurs at these lower force size levels, this order effectively brings training to a close until the order is reversed.

Jim Miklaszewski of NBC News first reported this development last night:

Most joint U.S.-Afghan military operations have been suspended following what authorities believe was an insider attack Sunday that left four American soldiers dead, officials told NBC News.

“We’re to the point now where we can’t trust these people,” a senior military official said. So far this year, 51 NATO troops have been killed in these so-called blue-on-green attacks. Sunday’s attack came a day after two British soldiers were shot dead by an Afghan policeman, Reuters reported.

“It’s had a major impact on our ability to conduct combat operations with them, and we’re going to have to back off to a certain degree,” the official said.

The suspensions of the joint operations are indefinite – according to one official, they “could last three days or three months.”

ISAF took issue with some of the early reporting and issued this “clarification” this morning:

 Recent media coverage regarding a change in ISAF’s model of Security Force Assistance (SFA) to the Afghan National Security Forces is not accurate. ISAF remains absolutely committed to partnering with, training, advising and assisting our ANSF counterparts. The ISAF SFA model is focused at the battalion level and above, with exceptions approved by senior commanders. Partnering occurs at all levels, from Platoon to Corps. This has not changed.

In response to elevated threat levels resulting from the “Innocence of Muslims” video, ISAF has taken some prudent, but temporary, measures to reduce our profile and vulnerability to civil disturbances or insider attacks. This means that in some local instances, operational tempo has been reduced, or force protection has been increased. These actions balance the tension of the recent video with force protection, while maintaining the momentum of the campaign.

We’ve done this before in other high tension periods, and it has worked well. Under this guidance, and as conditions change, we will continue to adapt the force posture and force protection. The SFA model is integral to the success of the ANSF, and ISAF will return to normal operations as soon as conditions warrant.

It seems to me that just as the “Innocence of the Muslims” video and its associated protests was used as cover for the sophisticated attack on the US Consulate in Benghazi, ISAF now is using the film and protests as cover for suspending training even though this suspension was a development that was easily predicted when Special Forces halted training of the Afghan Local Police on September 2. As I said at the time: Read more

Bad Weekend in Afganistan: Attacks by Afghan National Police, Afghan Local Police and Taliban in US Uniforms

It has been a horrific weekend for NATO forces in Afganistan. Friday, insurgents infiltrated the air base where Britain’s Prince Harry is stationed and destroyed a large number of aircraft and facilities. The infiltration was aided by the attackers wearing US uniforms. Saturday, two British troops were killed by a member of the Afghan Local Police and today four US soldiers were killed by a group of Afghan National Police. The six green on blue deaths bring the total for this year to 51.

Here is the latest information from ISAF on Friday’s attack:

Following the 14 September attack at Camp Bastion, in which two Coalition service members were killed when insurgents attacked the base’s airfield, the International Security Assistance Force provides the following additional details.  Because it is still early in the investigation of this attack, this information is subject to change as new details become available:

The attack commenced just after 10 p.m. when approximately 15 insurgents executed a well-coordinated attack against the airfield on Camp Bastion.  The insurgents, organized into three teams, penetrated at one point of the perimeter fence.

The insurgents appeared to be well equipped, trained and rehearsed.

Dressed in U.S. Army uniforms and armed with automatic rifles, rocket propelled grenade launchers and suicide vests, the insurgents attacked Coalition fixed and rotary wing aircraft parked on the flight line, aircraft hangars and other buildings.

Six Coalition AV-8B Harrier jets were destroyed and two were significantly damaged.  Three Coalition refueling stations were also destroyed.  Six soft-skin aircraft hangars were damaged to some degree.

Coalition forces engaged the insurgents, killing 14 and wounding one who was taken into custody.  In addition to the two Coalition service members that were killed, nine Coalition personnel – eight military and one civilian contractor – were wounded in the attack.  None of their injuries are considered life-threatening.

Danger Room provides some perspective on the issue of insurgents having access to US uniforms:

Nor is Friday’s attack the first perpetrated by insurgents disguised as U.S. troops. In 2010, following a spate of such attacks, the Pentagon ordered the Army to begin treating stocks of uniforms as “sensitive”and remove them from “pilferable” ground resupply convoys moving through Pakistan. “There is evidence that the enemy is using pilfered out-garment uniform items to gain a tactical advantage,” the Pentagon warned.

The unanswered question from Friday’s attack is did the insurgents hang on to uniforms obtained in 2010 or were the steps taken to secure the supply of uniforms breached recently? How many more uniforms do the insurgents have?

Danger Room also points out there there is a high-profile target at Camp Bastion and that there have been other recent attacks aimed at high-profile NATO targets: Read more

DoD’s Bungled Answers to Questions on Re-Vetting ANSF and Cultural Awareness

On Saturday, I noted that the move by US Special Operations forces to halt training of Afghan Local Police and Afghan special forces while those entire forces were re-screened for security threats meant that there would need to be an equivalent action taken on the larger effort to train the Afghan National Army and Afghan National Police while they are re-screened:

So, while only Special Operations forces have suspended training for now, it is hard to see how this will not extend to all training of Afghan security forces soon, because the lapses in screening of recruits applies equally to the much larger ANA and ANP forces (approximately 350,000 for those two forces combined, compared to various estimates in the 20,000 range for the ALP and Afghan special forces when combined).

Even though it was a holiday weekend, it is remarkable that Pentagon Spokesman George Little was taken so off-guard in this line of questioning that Marcy pointed me to in Tuesday’s transcript:

 Barbara, do you have a question?

Q:  Thanks, two questions.  On green-on-blue or insider attacks, what I didn’t hear you mention was that — what ISAF tells us is essentially all 350,000 Afghan security forces either have gone or are going through the process of being re-screened.  And that comes from ISAF.  So what would you — what does — what do you say to the families who have lost loved ones or their colleagues in the military after so many incidents this year alone?  Who’s accountable for it taking so long for the U.S. military, for the coalition to realize they had to re-screen?  Because for months, we were told isolated incidents, and apparently not.

MR. LITTLE:  Well, let me put this in some perspective here, Barbara.  It’s not that we have come only recently to this issue.  We’ve taken it seriously for some time.  In March of this year, six months ago, the — ISAF issued a tactical directive — and let me just list all that that tactical directive contained.  It made it the adoption of specific and tailored force protection measures.  Personnel and increased risks from insider attack were required to undertake specific close quarter combat and active shooter training.  All commands are required to conduct refresher training, particularly for mentors and others who routinely work side-by-side with Afghans.

The directive required additional in-theater cultural awareness training.  The directive also asked that coalition force units create safe zones inside ANSF compounds where they can defend themselves if necessary.  And more recently, there’s been a great deal of focus by General Allen and his team on the importance of Guardian Angels, small unit leadership, and counterintelligence matters that will help identify potential attackers early on.

Q:  But why did it take — and I have a follow-up to this, please — why did it take so long for the military in the department to come to the conclusion that 350,000 troops had to be re-screened?  Why did (off mic)

MR. LITTLE:  Three hundred and fifty thousand troops?  Read more

GAO Catches DoD Changing Definitions to Claim Progress Training Afghans, Misses Real Risks

Patrick Eddington pointed us toward a report (pdf) released yesterday by the GAO. The report is titled “Afghanistan Security: Long-standing Challenges May Affect Progress and Sustainment of Afghan National Security Forces”. GAO describes their reasons for the report (which is also Congressional testimony):

This testimony discusses findings from GAO reports and ongoing work that cover (1) progress reported and tools used to assess ANSF capability, (2) challenges affecting the development of capable ANSF, and (3) use of U.S. Security Force Assistance Advisory Teams to advise and assist ANSF.

The report does a very good job of catching the Defense Department redefining the highest category of ANSF capability in order to claim progress in the percentage of units that have achieved the highest level. However, as Eddington pointed out in his tweet, GAO falls far short of its second goal of enumerating the “challenges affecting the development of capable ANSF”, as the report is entirely silent on the two biggest hurdles faced: defections and green on blue killings.

Here is Reuters’ Missy Ryan describing the use of changed descriptors to claim progress:

The Pentagon’s decision to change the standards used to grade the success of Afghan police and soldiers, who are a centerpiece of U.S. strategy for smoothly exiting the war in Afghanistan, helped it present a positive picture of those forces’ abilities, a U.S. government watchdog reported on Tuesday.

“These changes … were responsible, in part, for its reported increase in April 2012 of the number of ANSF units rated at the highest level,” the Government Accountability Office said in a new report on Afghan national security forces, known as ANSF.

In a twice-annual report to Congress in April 2012, the Defense Department reported that Afghan police and soldiers “continued to make substantial progress,” classifying 15 out of 219 army units as able to operate ‘independently with assistance’ from foreign advisors. Almost 40 out of 435 police units got the same rating.

And what was the redefinition of terms that was used? Merely a slight change that completely negates its meaning:

“Key definitions used in capability assessments … have changed several times,” the GAO said. Its report said the Pentagon’s highest rating for Afghan forces had changed from ‘independent’ in early 2011 to ‘independent with advisors’ later that year.

Gosh, the only way that DoD could show that the ANSF had increased the number of units rated at the highest level of capability was to redefine that highest level of capability. So, instead of “independent”, the most capable units are now “independent with advisors”, which is, you know, NOT independent. Read more