2008年-世界发展银行全球_Afghanistan_-_Building_an_Effective_State___Priorities_for_Public_Administration_Reform_110页_8mb

Afghanistan: Public Administration Reform Summary

Core Content

This document outlines the priorities for public administration reform (PAR) in Afghanistan, focusing on the need to build an effective and accountable state over the next 5-10 years. It emphasizes the importance of civil service reform, local governance improvements, and enhancing government accountability to the people. The report is prepared by the World Bank and includes insights from various international and local stakeholders, as well as a detailed analysis of the challenges and opportunities in Afghanistan's public administration system.

Main Views

• State Building is Central to Reconstruction: An effective state capable of providing security and services while protecting rights is essential for Afghanistan's development. Despite progress, many government functions are still managed by the international community.
• PAR is a Long-Term Task: Public administration reform requires sustained support and cannot be rushed. It is a critical component for ensuring local ownership and leadership in development.
• Civil Service Reform is Key: A merit-based, professional civil service is vital for improving service delivery and maintaining government credibility. However, the reform process faces significant challenges, including patronage, corruption, and the need for institutional coordination.
• Local Governance Needs Strengthening: Sub-national institutions such as provinces, districts, and municipalities are crucial for effective service delivery. However, they suffer from structural inefficiencies, resource disparities, and lack of clear mandates.
• Accountability is Essential: Government must be held accountable through both internal and external mechanisms, including the judiciary, parliament, media, and civil society.

Key Information

Civil Service Reform

• Scope and Structure: The civil service has been reduced in size from 30 to 25 ministries since the start of reconstruction. However, the structure remains informal and inefficient.
• Merit-Based Recruitment: The Basic Civil Service Law was approved in 2005, but key regulations and procedures are still pending. The Appointments Board within the IARCSC has made progress in this area, but is still under pressure from political actors.
• Pay and Grade Structure: A new pay and grade structure was approved in 2007 to improve performance incentives. It aims to align grades with job content and reduce reliance on ad hoc pay supplements. However, the new structure may not be sufficient to attract skilled personnel and will require additional capacity-building initiatives.
• Implementation Challenges: The IARCSC has not yet developed a detailed implementation plan with line ministries and donor partners. The upcoming elections pose a risk of undermining the reform process.

Local Governance and Service Delivery

• Sub-National Challenges: The sub-national system is characterized by systemic contradictions, inefficiencies, and inequities in resource distribution. Provincial Governors (PGs) have informal influence over line ministries, leading to a lack of coordination.
• Institutional Weaknesses: Provincial and district governments lack clear mandates, financial frameworks, and operational systems. Municipalities and Community Development Committees (CDCs) are particularly vulnerable due to unclear funding and roles.
• Need for Deconcentration: There is a need to transfer authority from central ministries to provincial and district levels. This includes deconcentrating functions such as teacher recruitment and health service delivery.
• Fiscal and Resource Gaps: Sub-national institutions face significant funding shortfalls, especially CDCs, which are set to lose support under the National Solidarity Program (NSP). A rational fiscal framework is needed to address these gaps.

Government Accountability

• Internal and External Checks: While internal controls such as public financial management are important, external checks through the judiciary, parliament, media, and civil society are also crucial for ensuring accountability.
• Parliament and Judiciary: Strengthening these institutions is necessary to improve governance and public trust. The 2005 parliamentary elections highlighted the need for more effective parliamentary oversight.
• Role of Civil Society and Media: Civil society organizations (CSOs) and media play a key role in holding government accountable. The document suggests that greater involvement of these groups is needed to improve transparency and public engagement.

Twelve-Point Agenda for Public Administration Reform

The report proposes a twelve-point agenda for public administration reform, focusing on:

1. Establishing a clear direction for sub-national reform.
2. Strengthening coordination and planning at the provincial level.
3. Enhancing oversight by Provincial Councils.
4. Improving organizational structures of service delivery agencies.
5. Deconcentrating functions to provincial and district levels.
6. Developing a rational and equitable fiscal framework for sub-national institutions.
7. Ensuring sufficient funding for key governance bodies.
8. Strengthening the capacity of civil servants through training and education.
9. Implementing merit-based recruitment and appointments.
10. Improving transparency and information flows.
11. Enhancing public financial management.
12. Supporting the development of local institutions and community engagement.

Conclusion

The document highlights the importance of a balanced and sustained approach to public administration reform in Afghanistan. It underscores the need for both structural changes and capacity building to ensure that the government can deliver effective services and maintain public trust. The reform agenda is ambitious and requires close coordination between the Government of Afghanistan and the donor community to succeed.