Independent Directorate of Local Governance
Islamic Republic of Afghanistan
Subnational Governance
Policy of the
Government of
Afghanistan
Revised Implementation Framework
Draft 1.3
July 2012
TABLE OF CONTENTS
EXECUTIVE SUMMARY .................................................................................................................................................. 1
1. OVERALL APPROACH ................................................................................................................................................ 3
1.1 PURPOSE OF THIS DOCUMENT ............................................................................................................................................ 3
1.2 HIGH-LEVEL STRATEGY ...................................................................................................................................................... 3
1.3 MODEL OF CHANGE.......................................................................................................................................................... 4
1.4 POLICY IMPLEMENTATION ACTIVITIES ................................................................................................................................... 7
1.41 The five priority areas .......................................................................................................................................... 7
1.42 Activities under the five priority areas ................................................................................................................. 7
1.421 Basic functions and relationships of provincial and district entities ................................................................................. 7
1.422 Organizational effectiveness of the PGO ........................................................................................................................... 8
1.423 Institutions for planning and implementing service delivery ............................................................................................ 8
1.424 Accountability at the provincial level ................................................................................................................................ 9
1.425 Municipal service delivery ............................................................................................................................................... 10
1.43 Terminology ....................................................................................................................................................... 12
2. POLICY IMPLEMENTATION DELIVERABLES ...............................................................................................................13
3. MANAGEMENT OF IMPLEMENTATION.....................................................................................................................21
3.1 IMPLEMENTATION CYCLE ................................................................................................................................................. 21
3.2 REPORTING .................................................................................................................................................................. 23
3.3 COMMUNICATION PLAN .................................................................................................................................................. 26
ANNEX: SUPPORTING AND BACKGROUND MATERIAL .................................................................................................28
1. THE INTENDED MODEL OF SUBNATIONAL GOVERNANCE ......................................................................................................... 28
1.1 Fundamental principles ........................................................................................................................................ 28
1.2 Functions of provincial-level and district-level entities ........................................................................................ 29
1.3 Key subnational-level processes ........................................................................................................................... 30
1.31 Planning and implementation of service delivery at provincial and district level ............................................................. 30
1.32 Governor Coordination and Leadership ............................................................................................................................ 31
1.33 Provincial and District Level Accountability....................................................................................................................... 31
1.34 Planning and implementation of municipal service delivery............................................................................................. 33
2. BACKGROUND OF THE SNGP AND THE PRIORITIZATION PROCESS .............................................................................................. 34
2.1 Development of the SNGP .................................................................................................................................... 34
2.2 Implementation of the SNGP ................................................................................................................................ 34
2.3 Prioritization of the SNGP..................................................................................................................................... 36
LIST OF ABBREVIATIONS
Abbreviation
Admin & Fin
AG
ANP
ASP
Capacity
CLPD
CSC
DAA
DDP
DG
DGO
DO
E&W
Finance
FMIS
GDMA
HR
IDLG
JCMB
LAL
LCA
M&E
M. Economy
MAIL
ML
MoF
MoI
MoJ
MRRD
NPP
NPPLG
P&P
PAA
PC
PCL
PDC
PDP
PG
PGO
PLD
PSP
RIL
SC
SNG
SNGP
TA
TOR
Meaning
Finance & Administration Directorates of IDLG
Attorney-General
Afghanistan National Police
Afghanistan Local Governance Facilities Development Programme
IDLG Capacity and Institutional Development Directorate
IDLG Directorate of Coordination and Local Programme Development
Civil Service Commission
District Administrative Assembly
District Delivery Programme
District Governor
District Governors' Office
District Office
Ministry of Energy and Water
IDLG Directorate of Finance
Financial Management Information System
IDLG General Directorate of Municipal Affairs
IDLG General Directorate of Human Resources
Independent Directorate of Local Governance
Joint Coordination and Monitoring Board
Local Administration Law
IDLG General Directorate of Local Council Affairs
Monitoring & Evaluation
Ministry of Economy
Ministry of Agriculture, Irrigation and Livestock
Municipalities Law
Ministry of Finance
Ministry of Interior
Ministry of Justice
Ministry of Rural Rehabilitation and Development
National Priority Programme
National Priority Programme for Local Governance
IDLG Directorate of Policy & Planning
Provincial Administrative Assembly
Provincial Council
Provincial Councils Law
Provincial Development Committee
Provincial Development Plan
Provincial Governor
Provincial Governors' Office
Provincial Line Department
Provincial Strategic Plan
Right to Information Law
Supreme Court
Subnational Governance
Subnational Governance Policy
Technical Assistance
Terms of Reference
LIST OF TABLES AND FIGURES
Figure 1
Figure 2
Figure 3
Figure 4
Figure 5
Simplified model of subnational governance system
“Develop, Disseminate and Support” change process
Interventions to be delivered through change process
SNGP implementation process
Policy implementation report format
p4
p5
p6
p22
p25
Table 1
Table 2
Table 3
Table 4
List of IDLG Focal Points
List of external Focal Points
List of implementation channels
Communication plan
p12
p12
p12
p26
Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
EXECUTIVE SUMMARY
This document is a prioritized implementation framework for the Subnational Governance Policy (SNGP) of
Afghanistan, covering the period between now and the expiry of the five-year period for the implementation
of the SNGP in April 2015. It has been formulated based on lessons learned from implementation of the
Policy to date, and based on needs and changed circumstances that have emerged since the approval of the
Policy, such as Transition, the “Kabul Process”. It is also one of the deliverables of the National Priority
Programme for Local Governance (NPPLG), specifically deliverable 2.1- a streamlined and prioritized
implementation framework for the SNGP, produced and approved by IDLG.
This document was produced as a result of a comprehensive review of the implementation of the SNGP that
was prepared in the second half of 2011 and was presented to donors in January 2012. For this review,
IDLG’s Policy Directorate prepared a 64-point summary of the SNGP, and then worked with its directorates
and partners to identify progress against each of the 64 points. Based on the implementation data thus
generated, IDLG was able to identify clear lessons learned, and formulate recommendations for future
implementation, covering the topics of how management of policy implementation can be improved, and
how priorities can be identified: these proposals were endorsed with some additions and small modifications
by donors and partners.
Based on the review process, IDLG determined that a part of the Policy should be recognized as a priority if it
(i) had been a subject of significant effort prior to the review, (ii) it fell under an NPPLG deliverable, (iii) the
objective or substance of the policy point had been identified as a priority for Transition. Based on these
priorities, 34 of the 64 points of the point-by-point summary were identified as priorities. These were then
re-organized into 5 thematic areas, as follows:
1. Clarifying the basic functions and relationships of provincial and district entities;
2. Making Provincial Governors’ Offices more effective organizations;
3. Building the institutions for planning and implementing service delivery at provincial level;
4. Increasing provincial-level accountability;
5. Strengthening the municipal service delivery cycle.
These are recognized as the overall priorities and the high-level headings for activities under the
implementation framework.
To facilitate implementation of the Policy, this document presents an output for each of the five priority
areas. The five outputs are divided into 4-6 sub-outputs, and for each sub-output a clear, specific practical
and time-bound deliverable is identified. These deliverables include both “central level” deliverables such as
manuals, agreements and processes, and “field level” deliverables such as workshops, public events and
implementation support, most of which need to be provided to all Provincial Governors Offices, Provincial
Municipalities and Provincial Councils. The document also clearly identifies internal and external
implementation responsibility for all deliverables, as well as identifying category of the deliverable, e.g.
whether it is deliverable related to Public Administration Reform, Budget Reform, Policy & Procedure, and so
on. The underlying “model of change” for all of the activities is what is called the “develop, disseminate and
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Implementation Framework Draft 1.3
support” model, under which IDLG and its partners define expected systems or behavior at the subnational
level, clearly disseminate information and guidance on the systems, and then provide field support to ensure
that it is adopted. This model applies across many types of interventions including clarifying relationships
between local actors, implementing improved financial practices and supporting organizational development
for Governors’ Offices and other SNG units.
In addition to a high level of clarity about the specific deliverables needed to implement SNGP priorities, this
document also proposes practical management arrangements for policy implementation. The premise of the
approach is that IDLG, with some targeted technical assistance, can produce most ‘central level’ deliverables
such as procedures and agreements. However, due to the sheer number of SNG units nationwide and the
number of activities and events that are needed to ensure adoption of new systems and new behavior, IDLG
cannot produce all ‘local level’ deliverables using its internal resources. Therefore, IDLG will rely on donorfunded projects and other external implementation mechanisms to produce these deliverables. The
document puts forward a clear and simple management model based on this premise: in each planning
period, the Policy Directorate communicates the planned deliverables for the upcoming period to the
implementing Directorates of IDLG; the implementing Directorates either assign responsibility for
deliverables to their own teams and sub-units, or negotiate with donor-funded projects to ensure that the
deliverables will be produced in each SNG unit as planned; the Directorates then track the production of
deliverables as planned and agreed, e.g. verifying that all the expected workshops and public events in each
province are being delivered, and then report implementation to the Policy Directorate and the M&E
Directorate; consolidated reporting is then generated and shared with appropriate stakeholders. This
management arrangement makes it plausible that the outputs and deliverables identified in the framework
actually can be implemented, provided donor-funded projects are able to align their activities with the
content of the framework. It therefore depends on a very high level of collaboration with donors and
implementing partners.
The outputs and deliverables of the framework are based on the model of Subnational Governance that runs
through most of the main Subnational Governance Policy Document: the system in which provinces and
district are administrative units but not political units, government offices in the provinces and districts are
“branch offices” of central agencies, and the subnational governance units (Governors’ Offices, Provincial
Councils and Local Municipalities) serve the purpose of adding local decision-making and accountability to
what would otherwise be a fully centralized system. The policy and the implementation framework are
therefore conservative in the sense that no fundamental changes to the existing system are proposed: all
outputs and deliverables have the underlying objective of making the existing system work, rather than
fundamentally changing it.
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1. Overall approach
1.1 Purpose of this document
This document contains an Implementation Framework for subnational governance reform over a three year
covering the remaining period for the implementation of the SNGP and also the period of the
implementation of the local governance National Priority Programme (NPP). The outputs and targets are
based on a prioritization of the SNGP that has been conducted over the last year, and reflect a prioritized
and pragmatic approach to SNGP implementation. The document provides a clear plan and implementation
mechanism for subnational governance reform in the medium term, and will help to align the efforts of
IDLG’s implementing partners, international organizations and donor countries both in Kabul and in the
provinces. The background and origins of the framework are described in Annex I of this document.
This document is also a deliverable of the National Priority Programme for Local Governance1 (Governance
Cluster NPP4) and will contribute to some other deliverables. Specifically, this document counts as the
fulfillment of NPP deliverable 1.1, a streamlined prioritized implementation framework for the SNGP
produced and approved by IDLG by the end of 2012. It also supports the deliverable that key stakeholders
have a high degree of awareness of the NPP (deliverable 1.2) through the attached communication plan
(section 3.3) and the deliverable that IDLG has a strengthened policy management function (deliverable 1.3)
through the implementation approach and reporting approach contained in the document (sections 3.1 and
3.2). Many of the priorities for SNGP implementation defined in this document are the same as, or clearly
related to, NPP outcomes, sub-component outcomes and deliverables. When this is the case, this is clearly
indicated in the document. However, there are some deliverables in the document that are not explicitly
listed as deliverables in the NPP. This is because the NPP is not solely concerned with SNGP implementation,
while this document is.
This document also outlines a clear programme of communication with the SNG units, and can be taken as a
part of an IDLG communication strategy or policy for the SNG units.
1.2 High-level strategy
The reform strategy underlying the outputs and targets outlined in this document is as follows.



1
Deliver practical and incremental reforms. Over a period of three years it is not possible to change
how systems and institutions work comprehensively or fundamentally, especially not in a country
like Afghanistan where positive change comes slowly. The strategy is therefore to deliver small but
tangible improvements to the current system that have a chance of being successfully delivered in
the current environment.
Make the current “intended system” work. The current, Constitutional basis for SNG is fairly
centralized but includes provision for local level planning and implementation of service delivery and
local level accountability. However, these provisions have only been partially implemented, and
therefore the current system does not perfectly match the intended system. The SNGP clearly
intends to realize the intended system, in which the provisions for local governance that exist within
the current system are fully implemented. This is therefore the approach of this document.
Focus on the core SNG units and the core processes that the SNG units are part of. The
Government structures at subnational level include provincial and district branch offices of central
NPP4 was recommended for endorsement at a JCMB Standing Committee meeting on 23 June 2012.
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Implementation Framework Draft 1.3


Ministries as well as the units under IDLG: Governors Offices, Provincial Councils and local
municipalities. The focus of the reforms in this document is the units under IDLG and key processes
and institutions at local level, such as provincial planning and provincial accountability. The SNG
units play critical roles in these key processes but they also tend to draw in the branch offices of
central ministries, ensuring that the entire structure of Government at subnational level can be
addressed in some coherent way.
Provide clear communication and guidance. The basic premise of the strategy is officials of SNG
units want and need practical guidance and clear communications from central agencies. Further, if
the guidance is useful enough, communicated well and clearly, if there is buy-in from all national
stakeholders and support in implementing the guidance, it will lead to development of systems and
institutions and changes in behavior.
Emphasize the provincial level. Experience has shown that it is quite challenging to deliver capacity
development and institutional development in 34 provinces, let alone 371 districts. The deliverables
and targets therefore relate only to the provincial level, since it is not clear that any more than this
can be achieved. Limitations created by a provincial focus should be offset by the fact that Provincial
entities have functions for supporting district entities, and therefore capacity development for
provincial offices will benefit district offices.
1.3 Model of change
The diagram below gives a very schematic explanation of the intended structure of the subnational
governance agencies:
Subnational
Planning
Provincial
Municipalities
Development
and service
delivery
Coordination
Provincial
Governors’
Office
Coordination
Provincial
Line
Department
Development
and service
delivery
Accountability
Accountability
Provincial
Council
FIGURE 1: SIMPLIFIED MODEL OF SUBNATIONAL GOVERNANCE SYSTEM
In essence, the provincial government entities together produce plans and budgets, with budgets going up
to national level to incorporate into the national budgeting cycle. Once resources come to the provincial
level, line departments undertake development activities and service delivery within the scope of the
functions that have been delegated to them. Throughout this process, Governors play a coordinating role,
coordinating both planning and implementation of service delivery, while Provincial Councils play an
accountability and oversight function. Municipalities raise their own revenues and implement their own
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Implementation Framework Draft 1.3
service delivery programmes, and are thus semi-independent from the rest of the administrative system,
although the Governor usually has some type of coordinating role with respect to Municipal affairs. (The
diagram omits the fact that Governors Office are administrative sub-units of IDLG and provincial line
departments are administrative sub-units of central ministries, as this is not relevant for understanding this
basic system).
As things currently stand, the system of subnational governance does not exactly function in this way. This is
due to a number of reasons, including: the parts of the system of subnational planning have not been fully
linked and connected to the national budget; the coordination relationship between the Governors’ office
and other provincial agencies has not been fully defined in practice, leading to variability in actual
relationships; development and service delivery outside of the security and justice sector is monopolized by
central ministries and the parallel structures that have been set up for them; the local agencies have limited
access to and control over resources; Provincial Councils have neither the information nor perceived
authority to call the provincial executive offices to account; Provincial Municipalities are generally weak
throughout the entire cycle of raising revenue, planning how to use it and executing their plans.
The model of change used for this document is that IDLG and its partners (i) develop new systems, or clarify
in detail how existing systems are expected to work (through formal policies, procedures and other forms of
guidance), (ii) disseminate those systems so that all relevant stakeholders accept and understand them, (iii)
support their implementation by providing workshops, training and technical support while the relevant
agencies implement the new systems2. This approach can be called the “Develop, disseminate and support”
approach to change. This approach can lead to reform in processes and institutions such as local planning
and accountability, but also lead to changes in how resources are allocated when it is applied to systems for
budgeting, appointments and managing service delivery. The diagram below summarizes how this approach
can be used to address the systemic weaknesses in the SNG system.
SNG Unit
(pre-change)
• Weak organizations
• Unclear relationships
between provincial
structures
• Low level of control over
own resources
• Weak institutions of SNG
(planning, service
delivery, accountability)
CHANGE PROCESS
• Development of policies, procedures and other
kinds of guidance for internal management, key
relationships, critical institutions (e.g. planning),
budget planning and execution; clear, agreed and
with delegated responsibilities
• Dissemination and communication of expected
systems to SNG stakeholders
• Support for implementation of expected systems
through communication, TA, training
SNG Unit
(post-change)
• Stronger organizations
• Clear relationships
between other local
structures
• Higher level of control
over own resources
• Stronger institutions of
SNG (planning, service
delivery, accountability)
FIGURE 2: “DEVELOP, DISSEMINATE AND SUPPORT” CHANGE PROCESS
2
The need for more guidance has emerged repeatedly in the last year: for example a perception survey of PGOs administered by IDG in 2011 showed
that the majority of PGOs wanted more clarity from IDLG on their duties and responsibilities; a regional conference in the East in 2012 identified
guidance on interactions with the security and justice sector as one of the most urgent needs of PGOs and DGOs; most recently, nationwide survey of
PGOs identified clear guidance on execution of the core functions of the PGO from IDLG and other relevant agencies as one of the two main priorities
for future IDLG support.
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Interventions are needed at a number of points in the SNG system, some concerning internal structures and
functions of SNG units and some concerning relationships and SNG institutions. The diagram below shows
where interventions are needed and the type of intervention. One of the key points, of this diagram,
however, is that all of these interventions can be delivered with the “develop, disseminate and support”
approach.
•Organizational development
•Strengthening of PDC and PAA
•Improvement of resource flows
• Making key relationships work
•Reform to budget planning
• Alignment of local
planning processes
Develop,
disseminate
& support
Develop,
disseminate
& support
Subnational
Planning
Provincial
Municipalities
Development
and service
delivery
Coordination
Provincial
Governors’
Office
Provincial
Line
Department
Coordination
Development
and service
delivery
Accountability
Accountability
Provincial
Council
Develop,
disseminate
& support
Develop,
disseminate
& support
• Organizational development
• Improved municipal service
delivery cycle
• Improvement of information
flow to PC
• Making PC relationships work
• Improving resource flow
Develop,
disseminate
& support
• Delegation of responsibility
• Reform to procurement and
budget execution
FIGURE 3: INTERVENTIONS TO BE DELIVERED THROUGH CHANGE PROCESS
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1.4 Policy implementation activities
1.41 The five priority areas
As a result of the review of the implementation of the Policy and subsequent work on prioritization, IDLG has
identified five priority areas for policy implementation. These areas are:
1.
2.
3.
4.
5.
Clarifying the basic functions and relationships of provincial and district entities;
Making PGOs more effective organizations;
Building the institutions for planning and implementing service delivery at provincial level;
Increasing provincial-level accountability;
Strengthening the municipal service delivery cycle.
This implementation framework outlines a set of outputs, targets and deliverables falling within these
priority areas, using the “Develop, disseminate and support” framework outlined in the previous section.
The work needed in each of the five priority areas is described in the next section, and specific outputs,
deliverables and targets are given in section 2.
1.42 Activities under the five priority areas
1.421 Basic functions and relationships of provincial and district entities
The first priority area is basic functions and relationships of provincial and district entities. Activities in this
area are aimed at ensuring that the roles and responsibilities of the SNG entities and their inter-relationships
with other agencies at the local level are clear, understood and effective, consistent with the TORs and the
descriptions of key relationships provided in the SNGP. Specific areas of intervention under this priority area
include:

Creation and dissemination of legal framework for basic structures and functions of provincial and
district entities. IDLG will ensure that the Local Administration Law is enacted and fully
communicated to relevant SNG stakeholders including Governors, line departments, elected
councils, central ministries and donor agencies. As part of the communication programme, there will
be presentations of the law to all relevant provincial officials and public discussions in each province.
This will ensure that the basis for local governance is established and understood.

Establishment of clear, detailed and agreed norms for the relationship between Provincial
Governor and key external provincial offices. Under this area of work, IDLG will partner with
relevant central Ministries to provide specific guidance to subnational agencies on how Governors
should interact with other provincial agencies such as courts, the police, prosecutors, Mustufi and
the regular line departments with regard to service delivery. IDLG will work with the relevant central
agencies to develop practical operational guidelines based on current successful practices being
used in the field, for example working with the Ministry of the Interior to develop guidelines for
Governor interaction with Provincial Police. Once this guidance is developed and jointly approved,
IDLG will ensure that each agency disseminates the guidance to its provincial offices and that there
communication and training events in each province to ensure that there is full awareness and
understanding of the guidance amongst all stakeholders. While the guidance will help Governors to
engage with line departments in respect of ongoing operations of the Government, it will also
provide a basis for them to engage in respect of special responsibilities that emerge from time to
time, for example nationally important initiatives such as Transition and Peace & Reintegration.
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
Management effectiveness of provincial coordination and decision-making structures. Under this
area of work, IDLG will ensure that both the Provincial Administrative Assembly and the Provincial
Development Committee are effective bodies for joint planning, decision-making, mutual
accountability and follow-up. IDLG will ensure that the procedures for these bodies such as agenda
management, internal meeting procedures and for dissemination and follow-up of decisions are
well-defined and implemented, and that there are human resources in place to ensure that these
committees are properly supported. IDLG will work with the Ministry of the Economy to ensure that
this work is done in the case of the PDC. This activity will include provision of improved IT to allow
management of agendas and tracking of decisions, and events in each province to disseminate
improved PDC and PAA procedures.
1.422 Organizational effectiveness of the PGO
The second priority area is organizational effectives of the Provincial Governors’ Office. Activities under this
priority are aimed at ensuring that Provincial Governors’ Offices have the systems, staff and structures
needed to discharge their mandates, as outlined in the SNGP. Specific areas of intervention under this
priority area include:

Implementation of fiscally sustainable upgrades to infrastructure and equipment in PGOs and
DGOs. IDLG will work to narrow the gap between the current levels of infrastructure and equipment
in PGOs and DGOs and the standards specified in the SNGP and by the Afghanistan Local Governance
Facilities Development Programme (ALGFDP). IDLG will pool contributions from the Ministry of
Finance and from donors and will assist Governors’ Offices in planning and implementing upgrades,
using ALGFDP to provide assistance on planning, procurement and implementation. IDLG will also
ensure that all upgrades are fiscally sustainable, and do not generate Operations & Maintenance
liabilities which cannot be met in the future.

Establishment of professional management of internal systems and procedures in PGOs. IDLG will
improve internal systems such as HR, financial management, reporting and delivery of administrative
services through the PGO such as civil registration. IDLG will work with relevant partners in the
Government to develop clear procedures and guidelines, and will disseminate them to the PGOs.
There will be workshops in each province to ensure that each new set of procedures is understood.

Implementation of appropriate organizational designs for PGOs. IDLG will launch a participatory
organizational design process to develop new designs for PGOs, which include a level of flexibility
and responsiveness to provincial circumstances. Once designed, IDLG will work with all 34 PGOs to
help them select a new design and implement the design. This will include extensive field work in all
provinces.

Improved staffing and recruitment of PGOs. IDLG will assist all PGOs to improve the quality and
quantity of staff. In addition to ensuring that all PGOs can complete hiring of positions from grades
3-8 on their authority, IDLG will support a rolling recruitment programme in each province in order
to reduce provincial vacancy rates.
1.423 Institutions for planning and implementing service delivery
The third priority area is Institutions for planning and implementing service delivery at local level. Activities
in this area are aimed at ensuring that services are being planned and implemented at the local level,
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consistent with the approach to Subnational Planning and Finance outlined in the SNGP. Specific areas of
intervention under this priority area include:

Completion of policy framework for strengthening planning and implementation of service
delivery. IDLG will partner with other central-level stakeholders in local planning (e.g. MRRD,
Ministry of Finance, Ministry of Economy) to finalize the policy framework for local planning. This
will ensure that existing planning processes such as the District Delivery Programme (DDP), Districtlevel planning by the Ministry of Rural Rehabilitation and Development’s (MRRD) District
Development Assemblies, Provincial Development Planning by the Provincial Development
Committees (PDCs) and Provincial Budgeting by the Ministry of Finance are linked to one another
and are made to properly reflect the objectives set in the Province’s Provincial Strategic Plan (PSP). It
will also provide guidance on how these planning processes can be mainstream initiatives such as
Transition and Peace & Reintegration. IDLG will also help Ministries to develop policies for
delegation of responsibility, which will provide frameworks for increasing the scope of provincial
planning and provincial budgeting.

Implementation of improved planning practices. IDLG will complete the roll-out of PSP, and then
assist each province to conduct Provincial Annual Planning based on the PSP and reflecting priorities
such as Transition and Peace & Reintegration. Once the first set of provincial budgets is approved,
IDLG will provide technical support to each PDC and PC in supervising the implementation of the
annual plan. Again, this will require a series of workshops in each province, throughout the planning
cycle.

Implementation of agreed reforms to provincial budget planning. IDLG will work with the Ministry
of Finance to ensure that the scope of the Provincial Budgeting Pilot is progressively widened, as
previously agreed between IDLG and the Ministry of Finance (MoF). IDLG will play the role of
providing consultation, supporting MoF in dealing with donors, mobilizing Governors to support
reform and encouraging/persuading MoF to maintain momentum.

Implementation of agreed reforms to provincial budget allocation. IDLG will work with the Ministry
of Finance to ensure that formula-based/norms-based budget allocation is rolled out from sector-tosector, as previously agreed. As with the provincial budget planning, this is primarily an MoF output,
which IDLG will support and encourage.

Implementation of agreed reforms to provincial budget execution. IDLG will work with the Ministry
of Finance to ensure that the procurement and expenditure authorities of line departments are
expanded to match the planning authority, as previously agreed between the two agencies. This is
another area where IDLG will play a supporting role.
1.424 Accountability at the provincial level
The fourth priority area is accountability at the Provincial level. Provincial Councils (PCs) need to have the
information, capacity and relationships required to make other provincial agencies accountable, as outlined
in the TOR for the provincial council and the description of mechanisms for accountability and M&E
contained in the SNGP. Specific areas of intervention under this priority area include:

Creation and dissemination of legal framework for accountability at provincial level. IDLG will play
its role in ensuring that the Provincial Council Law and the Access to Information Law are enacted
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and disseminated. This will include workshops and public discussions in each province to ensure
awareness and full understanding.

Improved access to and usage of performance information by Provincial Councils. IDLG will work
with key central ministries and other relevant stakeholders to ensure that more and better quality
information about service delivery activities, expenditure and outcomes is collected and
disseminated to provincial level and to PCs specifically, so that they are able to exercise their
Monitoring & Evaluation duties more effectively. This will include policy and technical work at the
central level to agreed systems for collecting and disseminating data, and support to each of the 34
PCs to ensure that they can interpret the information and take action based on it. There will be an
emphasis on ensuring that performance information is easily communicated and understood, for
example using mechanisms such as performance league tables, Citizens’ Scorecards, and so on.

Establishment of clear, detailed and agreed norms for the relationship between Provincial Councils
and other provincial agencies. IDLG will work with key central agencies to develop clear guidelines
on how provincial agencies should interact with PCs, for example what kinds of requests the
agencies should respond to, and how they should respond. They will then ensure that the guidance
is jointly disseminated and that there are follow-up events in each province to ensure that the
guidance is understood not only by the PCs but by the major line departments and the PGO. This will
result in a higher level of cooperation between PCs and other provincial actors, and more clarity
about how the oversight and M&E role of the PC should be operationalized.

Creation of an effective Public Grievances system under the supervision of the Provincial Council.
IDLG will ensure that each PC office has a system for receiving formal complaints and grievances,
following up with the relevant authorities, reporting outcome back to the complainant and reporting
on the overall process and effectiveness of grievance resolution. The system will be designed based
on evaluation of current practices, and then staff and budget will be obtained through the budget
and Tashkeel revision process. Once budget and staff are deployed, the system will be launched and
there will be public presentation and discussion of the system in all 34 provinces to ensure that it is
widely used.

Improvement of Provincial Council access to resources and operational support. Under this activity,
IDLG will combine core contributions and donors’ funds for PCs and then allow Provincial Councils to
conduct their own budget planning within pre-defined budget ceilings.
1.425 Municipal service delivery
The fifth priority area is municipal service delivery cycle. Provincial municipalities need to continue to
increase revenue collection, get better and using it to deliver the services that people want, and so in a way
that is transparent and consistent with good governance, as described in the section on Municipalities in the
SNGP. Specific areas of intervention under this priority area include:

Creation and dissemination of legislative framework for municipal governance. IDLG will play its role
in ensuring that the municipal governance law is enacted and disseminated to all relevant
stakeholders. This will include workshops to communicate the law to each provincial municipal
administration and public discussion of the law in each provincial municipality.
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3

Establishment of improved systems for municipal revenue collection. IDLG will develop improved,
standardized guidelines on Revenue Improvement Action planning, disseminate them to the
provincial municipalities and then provide technical support to each of the 33 provincial
municipalities during the planning of the next year’s revenue collection. IDLG will also ensure that
the Information Technology used for Revenue Administration is upgraded in all of the provincial
municipalities.

Establishment of improved systems for municipal financial management, execution and reporting.
IDLG will develop improved, standardized procedures, regulations and guidelines for all aspects of
financial management for the municipalities, including budgeting, accounting, procurement,
payments and reporting. The guidelines will be disseminated to all municipalities, and there will be
one workshop and additional implementation support for the new procedures in all provincial
municipalities. This will be done in partnership with MoF.

Establishment of improved systems for planning, implementation and evaluation of municipal service
delivery. IDLG will provide assistance to each of the 33 provincial municipalities to go through the
entire cycle of public service delivery. Each municipality will be assisted in conducting public
consultations to identify what service should be provided, and then will be assisted to plan and
budget the service using its own funds. Finally, each municipality will be provided with technical and
management expertise in order to implement the service once planned.

Implementation of improved organizational designs for Provincial Municipalities. IDLG will conduct a
participatory process to develop new organizational designs for Provincial Municipalities, and then
will assist each of the municipalities in selecting and implementing one of the designs.

Provision of selected equipment and furnishings for Provincial Municipalities. IDLG will assist each of
the 33 provincial municipalities to plan and implement an upgrade of their facilities, equipment and
furnishings from a resource enveloped provided by development partners. IDLG will assist the
municipalities to procure the upgrade services using their own systems in a completely transparent
fashion and in compliance with regulations, and then reimburse them from the resource envelope.
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
1.43 Terminology
To facilitate management, for each deliverable in the implementation framework, the lead unit within IDLG
(‘IDLG focal point’ or ‘IDLG FP’) and the lead external agency (‘external focal point’ or ‘external FP’) are given.
The following table lists the Internal Focal Points for the various deliverables in the framework:
Abbreviation
P&P
CLPD
Finance
Admin & Fin
ASP
HR
LCA
Capacity
GDMA
Full name of IDLG focal point
Directorate of Policy & Planning
Directorate of Coordination and Local Programme Development
Directorate of Finance
Finance & Administration Directorates of IDLG
Afghanistan Local Governance Facilities Development Programme
General Directorate of Human Resources
General Directorate of Local Council Affairs
Capacity and Institutional Development Directorate
General Directorate of Municipal Affairs
TABLE 1: LIST OF IDLG FOCAL POINTS
The following table lists the External Focal Points for each deliverable:
Abbreviation
Parliament
MoJ
M. Economy
MoF
CSC
MRRD
Full name of external focal point
Parliament
Ministry of Justice
Ministry of Economy
Ministry of Finance
Civil Service Commission
Ministry of Rural Rehabilitation and Development
TABLE 2: LIST OF EXTERNAL FOCAL POINTS
To provide additional information, each deliverable is also classified according to the overall implementation
channel. The channels are
Abbreviation
Legislation
Procedure
Budget
PAR
Support
Investment
Full name of channel
Legislation
Policy, procedure, regulations and guidance
Budget reform
Civil service and Public Administration Reform
Field support, capacity development and Technical Assistance
Investment and capital formation
TABLE 3: LIST OF IMPLEMENTATION CHANNELS
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
2. Policy implementation deliverables
Output 1: Basic functions and relationships of provincial and district entities
Roles and responsibilities of the SNG entities and their inter-relationships with other agencies at the local level are clear and effective
Sub-output 1.1
Creation and dissemination of legal
framework for basic structures and
functions of provincial and district entities
(NPP sub-component 2)
Sub-output 1.2
Establishment of clear, detailed and agreed
norms for relationship between Provincial
Governor and key external provincial
offices
Sub-output 1.3
Management effectiveness of provincial
coordination and decision-making
structures
Deliverable 1 1H 2013
Local Administration Law
enacted (NPP deliverable 2.1)
Deliverable 2 1H 2013
LAL disseminated
Deliverable 3 2H 2013
Presentation for senior
officials for all provincial
administrations
Deliverable 4 2H 2013
Presentation and public
discussion for PC, media and
civil society
IDLG FP
P&P
External FP
Parliament
Channel
Legislation
Deliverable 1 2H 2012
Agreements to develop
guidance for 3 coordination
relationships with relevant
agencies (1. Police
relationship- MoI; 2. JusticeAG and SC; 3. General line
department relationshipMAIL, MRRD, Education,
Health, Public Works, E&W)
IDLG FP
P&P
External FP
See above
Channel
Procedure
IDLG FP
P&P
External FP
MoJ
Channel
Procedure
Deliverable 2 1H 2013
Guidance developed &
disseminated, and presented
in workshop in all 34
provinces for first
coordination relationship
IDLG FP
CLPD
External FP
N/A
Channel
Support
Deliverable 3 2H 2013
Guidance developed &
disseminated, and presented
in workshop in each Province
for second coordination
relationship
IDLG FP
CLPD
External FP
N/A
Channel
Support
Deliverable 4 1H 2014
Guidance developed &
disseminated, and presented
in workshop in each Province
for third coordination
relationship
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
Deliverable 1 2H 2012
Consultation and baselining
exercises completed in PDC
and PAA effectiveness in all
34 provinces
Deliverable 2 1H 2013
Agreement with Ministry of
Economy to revise PDC
processes ; development and
approval of PDC and PAA
procedure manuals
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
CLPD
M. Economy
Procedure
CLPD
See left
Procedure
P&P
M. Economy
Procedure
CLPD
See left
Procedure
Deliverable 3 2H 2013
Formal dissemination and
launch workshop for PDC and
PAA procedure manuals in all
34 provinces, installation of
PDC/PAA information
management system in all 34
PGOs/PDEs
IDLG FP
CLPD
External FP
M. Economy
Channel
Procedure
CLPD
See left
Procedure
Deliverable 4 2H 2013
1 workshop and 1 week of
implementation support on
new PDC and PAA procedures
in all 34 provinces
IDLG FP
External FP
Channel
Target
1H 2014
Legal basis for roles and
responsibilities of SNG units
exists, and all leadership, senior
staff & technical staff of SNG
units are aware of it and
understand it
Target
2H 2014
Operational practices for
coordination between PGOs
and key external agencies
(Police, Courts ,general line
departments) have been
disseminated to PGOs and
relevant provincial agencies in
all 34 provinces and
coordination activities are
taking place with an adequate
degree of compliance with the
defined practices
Target
1H 2014
Systems and procedures for
improved agenda
management, meeting
management and follow-up of
decisions are in place for PDCs
and PAAs of all 34 provinces
CLPD
M. Economy
Support
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
Output 2: Organizational effectives of the Provincial Governors’ Office
Provincial Governors’ Offices have the systems, staff and structures needed to discharge their mandates
Sub-output 2.1
Implementation of fiscally sustainable
upgrades to infrastructure and equipment
in PGOs and DGOs (NPP-subcomponent 9)
Sub-output 2.2
Establishment of professional
management of internal systems and
procedures in PGOs
Sub-output 2.3
Implementation of appropriate
organizational designs for PGOs
Sub-output 2.4
Improved staffing and recruitment of
PGOs ((NPP sub-component 10)
Deliverable 1 1H 2013
System for announcement of
annual development budget
allocation to PGOs developed
and approved
Deliverable 2
1H 2013
ALGFDP project restructured
to assist PGOs in design and
implementation of PGO and
DGO infrastructure projects
IDLG FP
Finance
External FP
MoF
Channel
Budget
Deliverable 1 2H 2012
New manuals for PGO HR,
financial management, office
management and ‘local
government operations’
developed and approved
IDLG FP
HR
External FP
MoF, CSC
Channel
Procedure
Deliverable 1 2H 2012
Set of PGO organizational
structures developed based
on consultation workshop
conducted in all 34 PGOs
IDLG FP
ASP
External FP
Channel
PAR
Deliverable 2
1H 2013
New manuals for PGO HR,
financial management, office
management and ‘local
government operations’
disseminated
IDLG FP
HR
External FP
MoF, CSC
Channel
Procedure
Deliverable 2
1H 2013
Workshop conducted in all 34
provinces to adopt/select
new PGO structures
IDLG FP
HR
External FP
CSC
Channel
PAR
Deliverable 1 2H 2012
Recruitment authority for
PGO and DGO positions
grades 3-8 delegated to PGO
IDLG FP
HR
External FP
CSC
Channel
Support
Deliverable 2
1H 2013
All 34 PGOs supported to
organize 2 jobs fairs each
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
HR
CSC
PAR
HR
CSC
Support
Deliverable 3
2H 2013
IDLG budget submission
includes infrastructure
projects planned by 34 PGOs
and financed with mixture of
core and donor contribution
IDLG FP
Finance
External FP
Channel
Budget
Deliverable 3
1H 2013
1 workshop and 1 week of
implementation support in
each PGO for each new
manual
Deliverable 4
1H 2014
All 34 PGOs have launched
procurement of approved
PGO and DGO infrastructure
projects
IDLG FP
CLPD
External FP
N/A
Channel
Support
Deliverable 3
2H 2013
Approval of new structures
and incorporation into IDLG
administrative arrangements
for all 34 PGOs
IDLG FP
HR
External FP
MoF, CSC
Channel
Procedure
Deliverable 4
2H 2013
Workshop and two weeks of
implementation support to
implement new TORs, budget
structures reporting lines for
all 34 PGOs
IDLG FP
HR
External FP
CSC
Channel
Support
Deliverable 4
IDLG FP
HR
External FP
CSC
Channel
PAR
Deliverable 3
1H 2013
Workshop and 1 week of
implementation support on
recruitment strategy for all
34 PGOs
IDLG FP
HR
External FP
CSC
Channel
Support
IDLG FP
ASP
External FP
MoF
Channel
Investment
Deliverable 4
2H 2013
One evaluation visit to each
PGO to assess uptake of
manuals
IDLG FP
External FP
Channel
Target
1H 2014
All 34 PGOs are planning and
implementing infrastructure
upgrades using a sustainable
and efficiently allocated
resource envelope
Target
1H 2014
All 34 PGOs are following official
procedures for basic office
management (e.g. HR, finance)
with a good degree of
compliance
Target
1H 2014
All 34 PGOs have implemented
new organizational designs
incorporating a degree of
flexibility in respect of staffing
levels and sub-structures, using
a participatory design process
Target
2H 2013
All 34 PGOs have implemented
their own recruitment
programmes in order to achieve
targeted fill rates in critical units
and positions
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
Output 3: Institutions for planning and implementing service delivery at local level
Services are being planned and implemented at the local level
Sub-output 3.1
Completion of policy framework for
strengthening planning and
implementation of service delivery
(NPP sub-component 14, deliverable 14.1)
Sub-output 3.2
Implementation of improved planning
practices
(NPP sub-component 14, deliverable 14.2)
Sub-output 3.3
Implementation of agreed reforms to
provincial budget planning
(NPP sub-component 3, deliverable 3.1)
Sub-output 3.4
Implementation of agreed reforms to
provincial budget allocation
(NPP sub-component 3, deliverable 3.2)
Deliverable 1 2H 2012
Guidance on formulation of
PDPs and Provincial Budgets
modified to ensure internal
linkages and links to
Provincial Strategic Plan
IDLG FP
CLPD
External FP
MoF, M. Ec
Channel
Procedure
Deliverable 1 1H 2013
2 workshops in each province
that has not yet completed
Provincial Strategic Plan to
support completion of PSP
IDLG FP
CLPD
External FP
N/A
Channel
Support
Deliverable 1 1H 2013
Expanded set of provincial
line departments and
expanded set of national
programmes included in
provincial budget pilot in all
34 provinces
IDLG FP
P&P
External FP
MoF
Channel
Budget
Deliverable 1 2H 2012
1392 provincial budget
ceilings in Education and
Local Governance set on
formula basis
IDLG FP
P&P
External FP
MoF
Channel
Budget
Deliverable 2
1H 2013
Guidance on provincial level
planning and district level
planning modified to ensure
district-level planning inputs
into provincial planning
IDLG FP
CLPD
External FP
MRRD
Channel
Procedure
Deliverable 2
2H 2013
1 workshop and 1 week of
implementation before start
of new budget planning
calendar to ensure
formulation of Provincial
Annual Plan (based on PSP,
DDP inputs, etc)
IDLG FP
CLPD
External FP
M. Economy
Channel
Support
Deliverable 2
1H 2013
Further expanded set if
provincial line departments
and programmes under
provincial budgeting, some
O&M budgeted for at least
one programme
IDLG FP
P&P
External FP
MoF
Channel
Budget
Deliverable 2
2H 2013
1393 provincial budget
ceilings in Health sector set
on formula basis
Deliverable 3
1H 2013
1 workshop for each of the 34
provincial administrations on
the revised planning system
Deliverable 4
1H 2013
Key service delivery
Ministries develop and
approve policies on
delegation of responsibility
IDLG FP
CLPD
External FP
All relevant
Channel
Capacity
Deliverable 3
1H 2014
1 workshop and 1 week of
implementation support for
each PDC/PAA on
coordinating implementation
of provincial plan & budget
IDLG FP
CLPD
External FP
All relevant
Channel
Procedure
Deliverable 4
1H 2014
1 workshop and 1 week of
implementation support for
each PC on oversight of
provincial plan & budget
IDLG FP
CLPD
External FP
M. Economy
Channel
Support
Deliverable 3
1H 2014
All major sectors including at
least 1 programme in
provincial budgeting, some
O&M budgeted in all
programmes
IDLG FP
External FP
Channel
Deliverable 4
IDLG FP
P&P
External FP
MoF
Channel
Budget
Deliverable 3
2H 2014
1392 provincial budget
ceilings in Roads sector set on
formula basis
IDLG FP
External FP
Channel
Deliverable 4
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
P&P
MoF
Budget
P&P
MoF
Budget
Target
2H 2013
All provincial planning processes
have been clearly linked with
each other and with PSP, and
the overall process is linked to
the national budgeting process
Target
2H 2014
All 34 provinces have
implemented the strengthened
planning cycle
GDLC
N/A
Support
Target
1H 2014
All 34 provinces are conducting
budget planning for activities in
their provinces in the major
service delivery sectors
Target
2H 2014
Provincial budget ceilings in
education, health, roads and
local governance are set using
efficient, transparent and fair
criteria
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
Sub-output 3.5
Implementation of agreed reforms to
provincial budget execution
(NPP sub-component 3, deliverable 3.3)
Deliverable 1 2H 2012
Ministries participating in
provincial budgeting delegate
increased procurement
authority required for
execution of expenditures
planned for provincial
budgeting
Deliverable 2
1H 2013
Ministries participating in
provincial budgeting
disseminate guidance to their
line departments on
procurement practices for
spending planned under
provincial budgeting, based
on guidance provided by MoF
Deliverable 3
1H 2013
Procurement planning and
management tools prepared
and distributed to line
departments of all ministries
participating in provincial
budgeting in all 34 provinces
Deliverable 4
1H 2013
1 workshop and 1 week of
implementation support for
participating line
departments in all 34
provinces during
procurement for 1392
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
P&P
MoF
Budget
P&P
MoF
Budget
P&P
MoF
Procedure
Target
2H 2013
All 34 provinces are
implementing payments and
procurements for the activities
that they planned and which
were subsequently approved in
the budget cycle
P&P
MoF
Support
Page 16
Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
Output 4: Accountability at the Provincial level
Provincial Councils have the information, capacity and relationships needed to make other provincial agencies accountable
Sub-output 4.1
Creation and dissemination of legal
framework for accountability at provincial
level
(NPP sub-component 2)
Sub-output 4.2
Improved access to and usage of
performance information by Provincial
Councils
Sub-output 4.3
Establishment of clear, detailed and
agreed norms for relationship between
Provincial Councils and other provincial
agencies
Sub-output 4.4
Creation of an effective Public Grievances
system under the supervision of the
Provincial Council
(NPP sub-component 21)
Deliverable 1 2H 2012
Provincial Councils Law (PCL)
and Right to Information Law
(RIL) submitted to Parliament
Deliverable 2
2H 2013
PCL and RIL enacted (NPP
deliverable 2.3)
Deliverable 3
1H 2014
PCL and RIL disseminated to
SNG stakeholders
IDLG FP
P&P
External FP
MoJ
Channel
Legislation
Deliverable 1 1H 2013
Government formulates
policy on generation and
distribution of performance
relevant information
IDLG FP
P&P
External FP
Parliament
Channel
Legislation
Deliverable 2
2H 2013
Main service delivery
ministries develop, approve
and implement procedures
on generation and
distribution of performance
information
IDLG FP
P&P
External FP
All relevant
Channel
Procedure
Deliverable 1 1H 2013
Agreement between IDLG
and relevant Ministries on
PC-Line Department Head
interactions
IDLG FP
P&P
External FP
All relevant
Channel
Procedure
Deliverable 2
2H 2013
Development of guidance on
PG-PC interactions by IDLG;
joint development of
guidance on PLD-PC
interactions by IDLG and
relevant Ministries
IDLG FP
P&P
External FP
All relevant
Channel
Procedure
Deliverable 2
2H2013
Staff and budget required to
add Public Grievances
management to PC office
requested
IDLG FP
P&P
External FP
MoJ
Channel
Legislation
Deliverable 3
1H 2014
1 workshop & 1 week of
implementation support for
each PC, and 1 workshop & 1
week of implementation
support for PGO & selected
LMs, on interpretation of
performance information
IDLG FP
GDLC
External FP
N/A
Channel
Support
Deliverable 3
1H 2014
In all 34 provinces:
dissemination of PGO-PC
guidance to PGOs and PCs by
IDLG: dissemination of PGOPLD guidance by relevant
parent agencies.
IDLG FP
CLPD
External FP
N/A
Channel
Support
Deliverable 3
2H 2013
Recruitment, deployment of
equipment and workshop on
Public Grievances system in
all 34 provinces
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
IDLG FP
P&P
External FP
All relevant
Channel
Procedure
Deliverable 1 1H 2013
Design of Public Grievances
system based on review and
baseline exercise in all 34
provinces (NPP deliverable
21.1)
IDLG FP
GDLC
External FP
Channel
Budget
GDLC
Budget
GDLC
Budget
Deliverable 4
1 H 2014
1 workshop for provincial
officials and 1 workshop for
PC, media & civil society on
PCL and RIL in each province
IDLG FP
LCA
External FP
N/A
Channel
Support
Deliverable 4
1H 2014
1 public event in each
province to present and
discuss new system of
information generation and
distribution
IDLG FP
GDLC
External FP
N/A
Channel
Support
Deliverable 4 1H 2014
1 workshop for Governor and
Line Department Heads in
each province; 1 workshop
for Provincial Council in each
province
IDLG FP
CLPD
External FP
All relevant
Channel
Support
Deliverable 4 1H 2014
Public announcement and
public discussion of
Grievances system in all 34
provinces (NPP deliverable
21.3)
IDLG FP
GDLC
External FP
Channel
Budget
Target
2H 2014
Legal basis for generation of
accountability at provincial level
exists, and all leadership, senior
staff & technical staff of SNG
units are aware of it and
understand it
Target
2H 2014
Provincial Councils and other
provincial stakeholders in all 34
provinces have access to
information on provincial
development, service delivery
and administrative decisionmaking, and are able to
interpret and use it
Target
2H 2014
Detailed norms for PC
interaction with line
departments and PGOs defined
and communicated; good
degree of compliance in all 34
provinces
Target
2H 2014
All 34 Provincial Councils have
access to a system for receiving,
acting on and reporting back on
the complaints of the provincial
electorate
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
Sub-output 4.5
Improvement of Provincial Council access
to resources and operational support
Deliverable 1 1H 2013
Procedure for planning of PC
budget revised to allow PC
planning of own budget
Deliverable 2
2H2013
Activities planned by 34 PCs
within ceiling, funded by mix
of core & donor funds
Deliverable 3
2H 2013
IDLG budget with PC inputs
approved
Deliverable 4 1H 2014
Execution of approved, PC
planned budgets initiated
(NPP deliverable 19.2)
(NPP sub-component 19)
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
GDLC , Fin.
MoF
Budget
GDLC, Fin.
MoF
Budget
GDLC, Fin.
MoF
Budget
GDLC, Fin.
MoF
Budget
Target
2H 2014
Flows to all 34 Provincial
Council offices are increased in
size and planned with much
greater input from PCs
Page 18
Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
Output 5: Municipal service delivery cycle
Provincial municipalities are raising revenue and using it to deliver the services that people want in a way that is transparent and consistent with good governance
Sub-output 5.1
Creation and dissemination of legislative
framework for municipal governance
(NPP sub-component 2)
Sub-output 5.2
Establishment of improved systems or
municipal revenue collection
(NPP sub-component 17, deliverables 17.117.2)
Sub-output 5.3
Establishment of improved systems or
municipal financial management,
execution and reporting
(NPP deliverable 17.3)
Sub-output 5.4
Establishment of improved systems or
planning, implementation and evaluation
of municipal service delivery
Deliverable 1 2H 2012
Municipalities Law (ML)
submitted to Parliament
Deliverable 2
2H 2013
ML enacted (NPP deliverable
2.2)
Deliverable 3
1H 2014
ML disseminated to SNG
stakeholders
IDLG FP
GDMA
External FP
MoJ
Channel
Legislation
Deliverable 1 2H 2012
Revenue Improvement Action
Planning (RIAP) manual
developed and approved
IDLG FP
GDMA
External FP
Parliament
Channel
Legislation
Deliverable 2
1H 2013
Revenue Improvement Action
Planning (RIAP) manual
disseminated to all Provincial
Municipalities, and workshop
conducted in each
municipality to review
material
IDLG FP
GDMA
External FP
N/A
Channel
Procedure
Deliverable 2
1H 2013
Financial Management
manual disseminated to all
Provincial Municipalities, and
workshop conducted in each
municipality to review
material
IDLG FP
GDMA
External FP
N/A
Channel
Procedure
Deliverable 2
2H 2013
2 planning workshops and 2
weeks of implementation
support to design and cost
selected service delivery
programme in all 33
provincial municipalities
IDLG FP
GDMA
External FP
N/A
IDLG FP
GDMA
External FP
MoJ
Channel
Legislation
Deliverable 3
1H 2013
Revenue Administration
information systems rolled
out to all Provincial
Municipalities
IDLG FP
GDMA
External FP
N/A
Channel
Procedure
Deliverable 1 2H 2012
Financial Management
manual develop and
approved
IDLG FP
GDMA
External FP
N/A
Channel
Procedure
Deliverable 1 1H 2013
2 planning workshops and 2
weeks of implementation
support to organize public
assessment of service
delivery programme in all 33
provincial municipalities
IDLG FP
GDMA
External FP
N/A
Deliverable 4 1H 2014
1 workshop for municipal and
provincial officials and 1
workshop for PC, media and
civil society on ML
IDLG FP
GDMA
External FP
N/A
Channel
Support
Deliverable 4 2H 2013
1 week of implementation on
revenue improvement for
revenue officials in all
Provincial Municipalities
IDLG FP
GDMA
External FP
N/A
Channel
Investment
Deliverable 3
1H 2013
Upgraded FMIS rolled out to
all Provincial Municipalities
IDLG FP
GDMA
External FP
N/A
Channel
Support
Deliverable 4 2H 2013
2 weeks of implementation of
improved Financial
Management for finance
departments of all Provincial
Municipalities
IDLG FP
GDMA
External FP
N/A
Channel
Investment
Deliverable 3
1H 2014
4 weeks of implementation
support to assist in launch
and operation of new service
delivery programme all 33
provincial municipalities
IDLG FP
GDMA
External FP
N/A
Channel
Support
Deliverable 4 2H 2014
1 planning workshop and 1
week of implementation
support to organize public
assessment of service
delivery programme all 33
provincial municipalities
IDLG FP
GDMA
External FP
N/A
IDLG FP
External FP
GDMA
N/A
Target
2H 2014
Legal basis for municipal
governance exists, and all
leadership, senior staff &
technical staff of SNG units are
aware of it and understand it
Target
2H2013
All 33 provincial municipalities
have developed and are
implementing Revenue
Improvement Action Plans, and
are collecting more revenue
from a wider base as a result
Target
1H 2014
All 33 provincial municipalities
pass financial audit without
major issues, while increasing
budget execution to over 75%
Target
1H 2015
All 33 provincial municipalities
are implementing at least one
new municipal service which
covers the majority of municipal
districts and which is planned
and evaluated in partnership
with the municipal populace
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
Channel
Sub-output 5.5
Implementation of improved
organizational designs for Provincial
municipalities
Sub-output 5.6
Provision of selected equipment and
furnishings for Provincial Municipalities
(NPP sub-component 15, deliverables 15.1
and 15.2)
Support
Channel
Support
Channel
Support
Channel
Support
Deliverable 1 2H 2012
Development and approval of
new Municipality structures
and TORs of major units and
positions based on
consultative/participatory
process
IDLG FP
GDMA
External FP
CSC
Channel
PAR
Deliverable 1 2H 2012
Assignment of resource
envelope for upgrades
Deliverable 2
1H 2013
Workshop in all 34 provinces
to adopt/select new
Municipality structures
Deliverable 3
2H 2013
Approval of new structures
and incorporation into IDLG
administrative arrangements
for all 33 Provincial
Municipalities
Deliverable 4 1H 2014
Workshop and two weeks of
implementation support to
implement new TORs, budget
structures reporting lines for
all 33 Provincial Municipalities
IDLG FP
GDMA
External FP
N/A
Channel
Support
Deliverable 2 2H 2012
Workshop in each Provincial
Municipality to plan spending
IDLG FP
GDMA
External FP
CSC
Channel
PAR
Deliverable 3
1H 2013
Implementation of upgrade
by all 33 Provincial
Municipalities
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
IDLG FP
External FP
Channel
IDLG FP
GDMA
External FP
N/A
Channel
Support
Deliverable 4
1H 2013
Reimbursement of
Municipalities according to
agreed spending plan and
resource envelope
IDLG FP
GDMA
External FP
N/A
Channel
Investment
GDMA
N/A
Investment
GDMA
N/A
Support
GDMA
N/A
Investment
Target
1H 2014
All 33 provincial municipalities
have implemented new
organizational designs
incorporating a degree of
flexibility in respect of staffing
levels and sub-structures, using
a participatory design process
Target
1H 2013
All 33 provincial municipalities
have planned, financed and
implemented a programme of
selected upgrades to their
internal offices and facilities
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
3. Management of implementation
3.1 Implementation cycle
The deliverables in the implementation framework are of two types:


Central-level deliverables. These are typically deliverables such as agreements, development of
procedures and other technical outputs. They are generally created centrally in order to direct and
enable later work in provinces and districts.
Local-level deliverables. These are specific activities in PGOs, provincial municipalities and Provincial
Councils such as training, workshops and the provision of technical support during critical processes
such as planning and budget preparation. They are generally based on central-level deliverables
already produced such as policies, agreements, procedures, directives and so on.
Implementation of the framework will be based on the recognition that IDLG can produce the central level
deliverables itself, with a limited amount of quality TA, but that IDLG cannot produce all the local-level
deliverables itself given its current resources and configuration. This is because IDLG does not have the
Human Resources or financial resources to conduct numerous workshops and provide extensive technical
support in all 34 PGOs and PCs and all Provincial Municipalities as described in the implementation
framework- the number of events required and the amount of support required is far beyond the level of
internal resources in IDLG. Therefore, IDLG will rely on donor-funded projects carried out via
implementing partners in order to produce all of the specified local-level deliverables. It should be noted
that this will require some of the existing donor funded projects to become better aligned with IDLG
priorities (especially the NPP). It may also be necessary for some new donor-funded projects to be created.
A very high level of cooperation and coordination with development partners will therefore be required3.
The planning and implementation of the SNGP will be fully mainstreamed into the normal annual IDLG
planning and implementation process. In outline, the process will be use the following process:
1. IDLG obtains the agreement of external agencies to support production of deliverables planned for
the coming year. The first step is for the Policy Directorate to engage with relevant external
agencies to ensure that they are committed to producing the deliverables specified in the
implementation framework for the time period. For example, the Ministry of Economy is listed as
External Focal Point for deliverable 3 of sub-output 3.2 (workshops to disseminate new PDC
procedures in the provinces), which is scheduled for the first half of 2014; therefore, during 2014
work planning, the Policy Directorate would contact the Ministry of Economy to get their
agreement to work on this deliverable together. The Policy Directorate would seek the support of
the IDLG leadership and other directorates as appropriate.
2. Policy Directorate communicates to the Implementing Directorates what deliverables they need to
produce for the coming year. At roughly the same time, the Policy Directorate would inform the
other directorates (the “Implementing Directorates”) what deliverables they were committed to
producing during the coming planning period, as specified in the framework. Because the policy
framework will have been fully discussed in IDLG and previously approved, implementing
directorates should be ready and willing to produce these deliverables and there should be “no
surprises”. This step is purely procedural, and mainly functions as a reminder to the Director and
his/her key staff. The HR Directorate, for example, is listed as the Internal Focal Point for a number
3
The alignment and coordination required is entirely consistent with the agreements of the Kabul Conference, the overall approach to the NPPs and
also the draft Aid Management Policy of the Ministry of Finance.
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
of deliverables in outputs 1 and 2, and so at the beginning of each planning period would be
informed exactly which deliverables were due in the coming year. The Policy Directorate would
provide additional clarification and explanation as and when needed.
3. Implementing directorates negotiate with donor-funded programmes to assign responsibility for
local-level deliverables. As mentioned above, local-level outputs generally involve activities in all 34
provinces or all 33 provincial municipalities, and IDLG will not have the capacity to implement all of
these directly. A brief analysis of section 2 of this document shows that separate workshops and
then follow-up support are needed for most of the sub-outputs in every provincial-level
subnational entity. Therefore, at this stage the Directorate has to negotiate with the donor-funded
projects in its sector to reach agreement to produce the deliverables, thereby ensuring that the
required events and technical support are delivered as needed. For example, deliverable 4 of
output 4.3 is the delivery of a workshop for each PC and for the PGO and line department heads in
each province, to present and discuss guidance on PGO-line department interactions, scheduled to
take place in the first half of 2014. To ensure this was delivered, IDLG’s General Directorate of Local
Councils would conduct joint planning with the donor-funded projects that support it and agree
which agency would conduct the workshops in each province, ensuring that all provinces were
covered and there was no duplication. Likewise, the Directorate of Coordination and Local
Programme Development would go through a similar process, assigning responsibility to
implement various field-level activities related to PGOs to the different donor-funded projects
supporting this sector.
11. Regular M&E
reporting, including
reporting of SNG
implementation
activities
DG &
DM Policy
9. Report of progress
of delivery of outputs
and deliverables by
external agencies,
donor-funded
projects and internal
teams
Policy &
Planning
Directorate
8. Tracks to verify
that agency is
producing
deliverables as
agreed.
Tracking
M&E
Directorate
10. Regular M&E
reporting, including
reporting of SNG
implementation
activities
2. Informs directorate of its
deliverables for the coming
year
7. Report on production of
deliverables by internal
teams and donor-funded
projects
1. Negotiates/agrees
deliverables and
outputs for coming
year
Planning
Reporting
5. Tracks to verify that
agreed deliverables are
produced for each SN unit
Donorfunded
projects
3. Assigns/negotiates
responsibility to implement
activities and produce
deliverables for each SN
unit
Implementing
Directorates
4. Assigns responsibility
to implement activities
and produce deliverables
at central level
6. Tracks to verify that
agreed deliverables are
produced in the centre
Internal
teams
External
Government
Agencies
FIGURE 4- SNGP IMPLEMENTATION PROCESS
4. Implementing directorates assign responsibility for central-level deliverables to their own sub-units
and teams. At this stage, the directorate will assign responsibility for delivering central-level
deliverables such as policies, procedures and guidance. As mentioned above, the expectation is
that IDLG will be able to produce these internally with some targeted assistance from international
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
5.
6.
7.
8.
9.
10.
11.
TA. Therefore, responsibility will be assigned by the Directorate to its sub-units and/or specific
teams.
Implementing directorates track the delivery of agreed outputs by the donor-funded projects. Once
deliverables, following donor discussion and agreement, have been assigned to donor-funded
projects by the relevant directorate, the directorates will verify that the planned outputs are
delivered. In general, it should be possible for the Directorates to rely mainly rely on the reporting
of the projects, but this can be supplemented with some independent monitoring and verification.
If implementation is not taking place as planned, the Directorate will ask for corrective action,
involving the leadership of IDLG if needed.
Implementing directorates track the delivery of assigned outputs by sub-units and teams. At the
same time, the Directorates will ensure that internally-assigned activities take place as planned.
Implementing directorates report production of deliverables to Policy Directorate. The
implementing directorate report, for each semi-annual period, the status of the production of
agreed deliverables by their donor-funded projects and by the sub-units and internal teams, clearly
indicating which deliverables were produced as planned, which were produced late and which
were not produced at all, and why.
Policy Directorate tracks the delivery of agreed outputs by external agencies. In this step, the Policy
Directorate will liaise with the “External Focal Points” who are committed to producing policy
deliverables, in order to verify whether they are being produced according to the agreed schedule.
If the external agencies are not producing deliverables as agreed, the Policy Directorate will
encourage them to take whatever actions are necessary to get back on track, and will involve the
IDLG leadership if needed.
Policy Directorate reports to the leadership of IDLG on policy implementation. Once the Policy
Directorate has complete information on the production of deliverables for each period, it will be
able to share this with the IDLG leadership and other relevant stakeholders. This information will be
shared in a simple report format, listing deliverables by Directorate/Focal Point that were planned
for the period, showing whether they were done or not, and whether they were on time or not.
Reporting on field-level outputs will contain information on whether the output was produced in
each SNG unit.
Directorates conduct regular reporting to M&E directorate. Implementing directorates will report
on their activities, inputs and outputs according to their agreed M&E frameworks. However,
whether any activities, input or output relates to a SNGP deliverable will be clearly indicated,
allowing the M&E unit to evaluate the directorates’ performance in SNGP implementation
separately.
M&E directorate conducts regular reporting to IDLG leadership. The M&E directorate will submits
its periodic reports to the IDLG leadership. These will be according to the agreed M&E frameworks
for IDLG, its programmes and directorates, but will also include information and evaluation of SNGP
implementation.
3.2 Reporting
As mentioned in section 3.1, some reporting of implementation will be provided through regular M&E
reporting, according to the agreed M&E frameworks of the IDLG directorates. This will be done in a way
which is consistent with the section on M&E in the National Priority Programme for Local Governance. In
addition, Policy Directorate will also conduct semi-annual reporting, focused on the production of the
Page 23
Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
deliverables outlined in section 2 of this document, and assigned to Directorates and external agencies on
an annual basis.
This report will comprise two main sections: the first will show the status of all central-level deliverables
due in the period, or carried over from the previous period; the second will show the status of the local
level deliverables in each PGO, PC or municipality, relative to the assignment of implementation
responsibility. An example format for giving this information is shown in the chart overleaf. Note that the
data in the chart is illustrative, and the presentation is truncated for the sake of brevity- in the local-level
deliverables section, only one directorate is given, and only a few of the 34 provinces listed- real reports
would be longer due to the need to cover all directorates and all provinces for the field-level section:
Page 24
Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
Central level deliverables: July-December 2013
Directorate
Policy
Local Council Affairs
Municipal Affairs
HR
Deliverable
1393 Budget ceilings for heath sector set on formula basis
Provincial Councils Law and Right to Information Law enacted
Main service delivery ministries develop, approve and implement information policies
Guidance on Provincial Council interaction with other provincial agencies developed and approved
Activities for 1393 budget planned by all 34 PCs
Municipalities law enacted
Approval of new structures for 33 provincial municipalities in IDLG
New manuals on HR management in PGOs prepared
External partner
MoF
Parliament & MoJ
MRRD, MAIL, Education
MRRD, MAIL, MoI
MoF
Parliament & MoJ
None
CSC
Status
Done
Done
Done
Done
Done
Delayed
Done
Done (from 1H2013)
Local level deliverables: July-December 2013
1. Directorate of Coordination and Local Programme Development (DCLPD)
Planned Deliverables
Presentation of Local Administration Law to
senior officials of all PGOs
1-day workshop in each province to present
improved PDC and PAA procedures
1 week of implementation support to each
province for implementation of PDC and
PAA procedures
1 workshop at the start of the budget
planning calendar in each province to
support formulation of Annual Plan
Assigned
Status
Assigned
Status
Assigned
Status
Assigned
Status
Badakhshan
DFID project
Delayed
DFID project
Done
DFID project
Done
DFID Project
Done
Badghis
UNDP
Done
USAID Project
Done
USAID Project
Done
DCLPD
Done
Baghlan
Internal
Done
Internal
Done
UNDP
Done
UNDP
Done
Balkh
UNDP
Done
USAID Project
Done
USAID Project
Delayed
UNDP
Done
Bamyan
DFID Project
Delayed
USAID Project
Done
UNDP
Done
USAID Project
Done
Daykundi
UNDP
Done
USAID Project
Done
USAID Project
Done
USAID Project
Done
Farah
DFID project
Done
USAID Project
Done
USAID Project
Done
DCLPD
Done
Faryab
UNDP
Done
USAID Project
Done
UNDP
Delayed
UNDP
Done
Ghazni
Internal
Done
USAID Project
Done
UNDP
Done
USAID Project
Done
Ghor
DFID Project
Done
Internal
Delayed
UNDP
Done
UNDP
Done
Province
FIGURE 5: POLICY IMPLEMENTATION REPORT FORMAT
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
3.3 Communication plan
To ensure full understanding and awareness of the new framework, the communication plan shown below will be implemented. (Timings given refer to the number of
weeks after official launch of the implementation framework.)
Category
High level information
(background, objectives,
approach)
Type
Letters
Fact sheet
Detailed information
about management
approach
+1
FAQ
Press release
Speech
1-page press release in local language
Speech for DG Farahi at suitable high-level event
+6
+10
Newsletter
Core doc
Article about new implementation framework
This document distributed in soft copy and hard copy to relevant
focal points
+4
+1
Workshop
Workshop to discuss overall set of outputs and deliverables
(rationale, feasibility, practicalities)
Document downloadable from IDLG website and partner websites
Article about some of the key deliverables
Document distributed as described above
+10
Workshop for key technical staff of implementing partners, donors
and government agencies on management approach
Article about how production of deliverables will be coordinated and
managed
Document distributed as described above
+10
Web content
Newsletter
Core doc
Workshop
Newsletter
First year deliverables
under framework
Target audience/participant/recipient
Timing
+1
2-page summary of framework distributed to all technical officers of
relevant Government agencies, implementing partners, donors
Overview presentation
Presentation for Governance Cluster
HTML version of fact sheet on IDLG website with key documents
downloadable
5-page Frequently Asked Questions document
Presentation
Presentation
Web content
Detailed information
about outputs and
deliverables in the
framework
Content
Description
Letter announcing new framework
Core doc
+4
+6
+6
+6
+6
+8
+1
+12
+1
Ministers, Governors, Agency Heads, INSF
leadership
Senior managers of ministries, donor agencies,
implementing agencies and projects
SNG Coordination Mechanism Meeting
Governance Cluster Meeting
All IDLG stakeholders
Senior managers and key technical staff of
ministries, donor agencies, implementing agencies
and projects
Afghan public
Ministers, Governors, Agency Heads, INSF
leadership
All IDLG stakeholders
Senior managers and key technical staff of
ministries, donor agencies, implementing agencies
and projects
Senior managers of ministries, donor agencies,
implementing agencies and projects
All IDLG stakeholders
All IDLG stakeholders
Senior managers and key technical staff of
ministries, donor agencies, implementing agencies
and projects
Key technical staff of ministries, donor agencies,
implementing agencies and projects
All IDLG stakeholders
Senior managers and key technical staff of
ministries, donor agencies, implementing agencies
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
Category
Content
Target audience/participant/recipient
Type
Description
Timing
Letters
Letters to listing activities planned for period, inviting requests for
further information and requesting support
Workshop to review practical arrangements for delivery of first year
deliverables
Presentation for PGO, PC and municipality technical staff explaining
planned outputs in more detail
Article emphasizing key deliverables for first year, with some
progress information
+10
Workshop
Presentation
Newsletter
+14
+14
+20
and projects
Provincial Governors, Mayors and PCs Chairs
Key technical staff of ministries, donor agencies,
implementing agencies and projects
Key technical staff of PGO and municipalities, PC
members and PC office staff
All IDLG stakeholders
TABLE 4: COMMUNICATION PLAN
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
Annex: Supporting and Background Material
1. The Intended Model of Subnational Governance
1.1 Fundamental principles
The model of Subnational Governance intended by the SNGP, and therefore by the SNGP implementation framework,
is the existing Constitutional system, with the scope for strengthening of local governance that exists within the
system fully realized. The fundamental principles of this model are:





Provinces and districts are administrative units, not political units. In the Afghan system, provinces and
districts are administrative divisions created for the purpose of improving the management of the country’s
affairs. They are not political units, and therefore do not have any independent legislative or revenue-raising
power. The country has only one political unit- the nation itself- hence it is described as “unitary”. This fact
has as its fiscal counterpart that the provinces and districts are not primary budget units- the primary budget
units are the central agencies of the state. Provinces and districts have budgets only in so far as primary
budget units have portions of their budget allocated to the provinces and districts.
Government offices in provinces and districts are sub-offices of central agencies. Because of the fact that
provinces are administrative units and not political units, government offices in provinces and districts are
branch offices or sub-offices of central agencies. Their primary line of accountability and control is upward, to
their head office in Kabul. Governors’ Offices are a special case of this as they are, from an administrative and
financial perspective, sub-offices of IDLG: they have a special status, however, because the head of the office
is a political appointee who is the head of the local administration, rather than a civil servant (as is the case
with other local offices).
Basic financial and administrative processes are singular in character. In the Afghan system there is a single
system for budgeting and a single Treasury. All budget submissions are made by the central agencies of the
state to the Ministry of Finance, and expenditures for provinces and districts must be included in those
budget submissions. All cash is managed by the single Treasury, and so all agencies, whether central or
provincial and district sub-offices, make payments by requesting the Treasury to process the payment on
their behalf. Recruitment is also a singular, in that there is a single Civil Service Commission with a single
appointments committee and a single appeals committee. While appointments do take place in the provinces
and districts, this is under the delegated authority of central agencies, not under independent authority.
Governors, municipalities and elected councils have the primary function “localizing” the central or
“Unitary” system. The basic principles of SNG determine a centralized system, which has some undesirable
characteristics such as keeping decision-making far from the people and decreasing accountability.
Governors, local municipalities and elected councils (Provincial Councils) offset these negative characteristics.
The existence of Governors allows coordinated decision-making and planning and implementation of service
delivery below the national level; the existence of Provincial Councils allows extraction of accountability
below the national level; the existence of Municipalities allows the entire service delivery and accountability
cycle to take place within an urban setting.
The basic approach for reform is the delegation of authority. Because of the structure described above,
“direct” approaches to reform such as giving provinces their own political authority, budgets or ministries is
not possible. Instead, reform can only be achieved by central agencies delegating their decision-making
power (e.g. the power to request budget, execute budget, make appointment and make operational
decisions) to their sub-offices. This kind of reform is within the scope of the Constitution.
It should be emphasized that these principles were not determined by IDLG- they are based on the Constitution and
the administrative structure of the country. In fact, they pre-date the current Constitution and go back at least as far
as the 1964 Constitution and the accompanying Basic Organizational Law.
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
The intended system, which based on these principles, is spelled out in sections II and III of this Annex 4.
1.2 Functions of provincial-level and district-level entities
i.
ii.
iii.
iv.
v.
vi.
vii.
viii.
ix.
x.
Functions of the Provincial Governor (PG). The PG is the executive head of the Provincial Administration.
The PG is mandated to use his/her authorities to achieve socio-economic development, justice and security in
a way which is inclusive and participatory, and which meets specific needs of the country such as conserving
the environment, addressing gender issues and reducing poppy cultivation. The means for achieving this
mandate are primarily through the Governors’ role of leading inter-agency planning amongst provinces,
coordinating implementation of activities by provincial line departments and holding line departments
accountable for their work and the results of their work.
Functions of the District Governor (DG). The DG is the executive head of the District Administration. The DG
is mandated to use his/her authorities to achieve socio-economic development, justice and security in a way
which is inclusive and participatory, and which meets specific needs of the country such as conserving the
environment, addressing gender issues and reducing poppy cultivation. The means for achieving this
mandate are primarily through the Governors’ role of leading inter-agency planning amongst provinces,
coordinating implementation of activities by District Offices departments and holding District Offices
accountable for their work and the results of their work.
Function of Provincial Line Departments (PLD) of Ministries. The role of the PLDs is to plan and deliver
services within the scope of the authorities delegated to them by their parent ministries in Kabul. Activities
delegated to Provincial Line Departments are planned in cooperation with other provincial agencies, under
the leadership of the PG, and implementation is overseen by both the Provincial Governor and the Provincial
Council.
Function of District Offices (DOs) of Ministries. The role of the DOs is to plan and deliver services within the
scope of the authorities delegated to them by their parent ministries in Kabul. Activities delegated to District
Offices are planned in cooperation with other district agencies, under the leadership of the district Governor,
and implementation is overseen by both the District Governor and the District Council.
Function of Provincial Councils (PC). The role of the PC is to represent the people and hold the Provincial
Governor and the Provincial Line Departments to account. They are responsible for monitoring and
evaluating service delivery, for giving local people voice, for bringing attention to issues raised in consultation
with their constituents, and for promoting gender equality. The Provincial Council also provides preliminary
approval of provincially-formulated plans prior to submission to Provincial Governors for final approval.
Function of District Councils (PC). The role of the DC is to represent the people and hold the District
Governor and the District Offices to account. They are responsible for monitoring and evaluating service
delivery, for giving local people voice, for bringing attention to issues raised in consultation with their
constituents, and for promoting gender equality. The District Council also approves the project ideas
collected by the District Governor prior to their submission to the Provincial Development Committee, as part
of the development of the “People’s Plan” during annual provincial planning.
Function of the Provincial Development Committee (PDC). The PDC is the technical forum by which
provincial plans are produced, reviewing the proposals of specific line departments, ensuring the
incorporation of project ideas generated through the bottom-up planning process, and finally combining all
elements into a single plan for the province. The PDC is also the forum for resolving coordination and
implementation issues after the plan has been approved.
Function of the Provincial Administrative Assembly (PAA). The PAA provides a forum for coordinating
administrative activities of provincial level government units, such as recruitment, Public Administration
Reform, procurement and financial management.
Function of the District Administrative Assembly (DAA). The DAA provides a forum for coordinating
administrative activities of district level government units.
Function of the Municipality. Municipalities will have legally defined mandatory and optional functions.
Mandatory functions may include municipal socio-economic development planning; revenue-raising;
4
The material that follows is based on the summary of the SNGP that was developed during the review of the Implementation of the SNGP Policy;
its basis and origin is therefore the main SNGP document.
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Subnational Governance Policy of Afghanistan
Implementation Framework Draft 1.3
xi.
xii.
xiii.
implementation of basic municipal infrastructure and social services. Optional functions may include
encouraging private sector investment and corporate partnership for service delivery.
Function of the Mayor. The functions of the Mayor will be defined under the law. These may include: being
the executive head of the Municipal Administration; ensuring that basic services are delivered and that
service delivery plans are implemented; ensuring that all municipal officials and organizational units
discharge their duties; provide policy, guidelines and Executive Orders to ensure that the Municipality
executes its functions; appointing employees of the municipal administration; coordinating with the Central
government; ensuring participation of and consultation with the municipal population.
Function of the Municipal Council. The functions of the Municipal Councils will be defined the Law. They may
include: participating in planning and budgeting, approving municipal plans, monitoring service delivery,
holding municipal officials accountable
Function of the Municipal Administrative Council. The Municipal Administrative Council includes the Mayor,
his/her deputy mayor and department heads. Its responsibilities include coordinating municipal activities,
preparing plans and budgets, proposing by-laws and regulations, confirming administrative decisions,
addressing issues in the implementation of service delivery plans and budgets and generally ensuring
efficient management of the municipality.
1.3 Key subnational-level processes
1.31 Planning and implementation of service delivery at provincial and district level
i.
ii.
iii.
iv.
v.
Identification of functions and budget for delegation. Central ministries identify which of their functions can
and should be implemented by their provincial line departments, according to a policy for delegation of
responsibilities. Those that can be implemented at a lower level are formally delegated to that lower level.
The budget for the functions that are delegated to the provincial level become the total provincial budget for
the country, and the budget for the functions that are delegated to the district level become the total district
budget for the country.
Application of provincial allocation formula. Each central Ministry divides the total budget for its provincial
line departments according to its own formula. The formula can be constructed so that the total funds
available can be divided according to up to four types of criteria: according to population size, according to
the cost of delivering services in the province for that Ministry, according to the performance of the province
in some dimension, and according to whether or not the province is designated as being amongst the most
poor. The formula can also be constructed to allow some of the funds to be divided equally amongst the line
departments.
Announcement of provincial budget ceilings. Ministries announce the portion of their budgets that are
available for planning and implementation of activities at provincial level during the annual budget cycle, so
that the information can be used during provincial planning.
Financing of provincial plan. The budget for functions delegated to provincial departments is transferred to
the province so that financial implementation can take place in the province. This means in practice that the
provincial departments will be authorized to spend funds for delegated functions via the Mustufiats.
Annual provincial planning process. Each province conducts an annual planning and budgeting process. The
process produces a plan for each sector, within the functional areas and using the budget that has been
allocated for each sector/line department (as described above). The process is as follows:
a. Development of “People’s Plan”. Starting early in the fiscal year (Hoot), a bottom-up planning
process takes place. In this process, villages produce project ideas in each sector. These ideas are
submitted by the Village Council (or CDC in the case that there is no Village Council) to the District
Governor, who carries out basic screening of the projects, for example removing illegible projects or
combining duplicate projects. These are submitted to the PDC, after the approval of the District
Council if it exists. The PDC then conducts a more detailed screening, and designs and costs the
projects remaining in the “people’s plan”.
b. Development of “Department-Driven Plans”. Starting in Hamal each line department initiates its
own planning and budgeting process in consultation with the PDC. Annual planning and budgeting
should be in line with the Province’s Strategic Plan.
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c.
vi.
Integration of plans. Once the budget ceilings for each sector in each province have been announced
(between Asad and Sunbula), the PDC selects projects in the people’s plan with a value of no less
than 25% of the budget for each sector, and ensure that each line department’s plan is completed
using the remaining portion of the budget. This produces the completed draft provincial plan.
d. Approval of plan. The provincial plan is then sent first to the Provincial Council for preliminary
approval, and then to the Provincial Governor for final approval.
e. Integration of provincial proposals into Central Ministry budget submissions. After approval by the
Provincial Council and Governor, the plan is broken up by sector, and the provincial line department
responsible for each sector submits its part of the provincial plan to its parent Ministry in Kabul, so
that the parent Ministry may include the plan in its annual budget submission.
Service delivery implementation responsibilities. Provincial line departments and district offices execute
their sections of the provincial plan, i.e. those activities planned and budgeted in their sectors, and delegated
to them by their parent Ministries, according to the Ministries’ policy for delegation of responsibilities. They
will operate existing programmes and assets, and will implement new development projects, if they fall
under functions delegated to them and the activities are planned and budgeted. In order to allow the
provincial line departments (and district offices) to execute this role, necessary financial authorities, e.g.
procurement authorities, will be granted.
1.32 Governor Coordination and Leadership
i.
ii.
iii.
Role of Governor in General Service Delivery. Governors have two roles in service delivery
a. Supervision and leadership of line departments/district offices. Provincial Governors (District
Governors) coordinate and supervise implementation of activities delegated to provincial line
department level (district office level). They are also required to ensure that Provincial Line
Departments (district offices) are meeting Service Delivery standards (as described in another part of
the policy). Governors do not play an operational or day-to-day management role in the
implementation of service delivery plans- this responsibility rests with the line department heads.
b. Special implementation responsibilities. Provincial Governors to be given authority to implement
programmes, via their Offices, in the case that there is no implementing agency with a mandate to
implement programmes of that type at provincial level. The budget for these programmes is
provided via IDLG’s budget. This must be approved by the Cabinet Sub-Committee on Subnational
Planning and Finance.
Role of Governor in security sector. The Provincial Governor and District Governor exercise coordination and
oversight functions in the security sector, such as ensuring that ANP members follow the Police Law, ensuring
rapid deployment of security forces and coordinating response to security issues; ANP functions under the
guidance and leadership of the Governor, and follows priorities set by Governor, while local police chiefs
retain organizational and operational independence.
Role of Governor in justice sector. The Provincial Governor (District Governor) has a coordinating and
supervisory relationship with Provincial Office of the Attorney General (District Office of the Attorney
General). This relationship must not undermine its functional independence.
1.33 Provincial and District Level Accountability
i.
ii.
Provincial council elections. Provincial Council elections are to be held in 2009. The Constitutional term limits
for Provincial Councils of 4 years is applied and so subsequent elections will be held every 4 years, i.e. in
2013,2017 and so on. A single non-transferrable vote system is used, with the province treated as a single
electoral constituency. There is a schedule for the size of the council based on province size, and a minimum
number of seats reserved for women.
District council elections. District Council elections are to be held in 2010. The Constitutional term limits for
Provincial Councils of 4 years is applied and so subsequent elections will be held every 4 years, i.e. in
2014,2018 and so on. A single non-transferrable vote system is used, with the district treated as a single
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iii.
iv.
electoral constituency. There is a schedule for the size of the council based on province size, and a minimum
number of seats reserved for women.
Role of the Provincial and District Councils. The key duties of the Provincial and District Council are
a. Accountability generation. Provincial (District) Councils assess the performance of the executive
agencies. This is achieved through Monitoring and Evaluation process, and through the practice of
the Provincial (District) Governor appearing before the Provincial (District) Council once per month
to ask questions. The Provincial (District) Council can report cases of non-performance of duties by
the Provincial (District) Governor to IDLG so that it can take corrective action. The Provincial
(District) Council can report poor performance by provincial line departments (district offices) to
IDLG, so that it may inform the relevant central agency so that it can take corrective action.
b. Participation in provincial planning. The Provincial Council provides preliminary approval of the
provincial plan (as described above). In addition, the chair of the Provincial Council is also a member
of the Provincial Development Committee, allowing the Council to further engage in the planning
process. The District Council approves the selection of project collected from villages by the District
Governor, prior to submission to the Provincial Development Committee, ideas during the
development of the “People’s Plan” (as described above)
c. Monitoring and evaluating service delivery. The Provincial Council is responsible for ensuring that
the provincial plan is implemented. The Provincial and District Council monitor and evaluate
development and service delivery, ensure that planned expenditures produce outputs, and that
expenditures have the desired outcomes. The Provincial and District Council also monitors and
evaluates gender equality and the extent/effectiveness of activities of line departments and district
offices in pursuing it. The Monitoring and Evaluation function of the Provincial and District Council is
supported by a system that generates, analyzes and distributes information on service delivery and
government performance, relative to nationally-defined service delivery standards.
d. Public grievances. The Provincial (District) Council supervises and ensures the effectiveness of a
system by which the provincial populace can express complaints or grievances related to provincial
and district government entities (district government entities), and under which these complaints
and grievances will receive a timely and appropriate response.
e. Outreach and participation. Provincial and District Council members are expected to consult with
their constituents regularly. The Councils are also expected to create opportunities for broad
participation in Governance, for example by ensuring that civil society, women and youth can
participate in planning and M&E processes, and by supporting women’s empowerment.
f. Other duties. Provincial and District Councils have other appropriate duties such as such as
overseeing response to disaster management and eliminating practices contrary to law, human
rights or Sharia, and resolving disputes when all concerned parties agree to it.
Public information at provincial and district level. Finally, the Policy requires the central and subnational
structures to support access to information of public and through wide variety of channels. This includes
a. Right to information. The Right to Information Law will be enacted, so as to implements the
Constitutional Right to Information. This will ensure that people have the right to information
possessed by Government Offices.
b. Communications capacity. Communications capacity will be built in the Office of the Provincial
(District) Governor and other subnational agencies, including both technical capacity and necessary
communications systems and infrastructure.
c. Public information strategy and systems. Provincial Public Information Systems will be established.
These will enable Provincial Governors to communicate with the public more easily and effectively
and to provide people with information on policies, strategies and progress of the government.
Public communications will use a wide variety of channels.
d. Provincial Public Communications Committees. Advisory committees will be established to assist the
Provincial Governor on the implementation of the Right to Information and the formulation and
implementation of Provincial Public Communications Strategy.
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1.34 Planning and implementation of municipal service delivery
i.
ii.
iii.
iv.
v.
Scope of annual planning of service delivery by municipalities. An annual planning or budgeting process will
take place in the municipalities. The scope of the planning will be the mandatory and optional functions of
the municipalities, as defined under the law, as well as any public service responsibilities delegated to the
municipalities by central ministries.
Process for annual planning of service delivery by municipalities. Annual municipal planning process should
be participatory and should allow involvement of people and civil society. Detailed technical planning will be
conducted by the Municipal Administrative Council and depending on the final determination of the powers
Municipal bodies under the law, the final plan will be approved by the Municipal Council. The process for
approval of municipality budgets at higher levels, for example by IDLG, will be streamlined. Capital projects
will have improved justifications and there will be flexibility in budget lines to allow for emergencies and
urgent needs.
Participation of private sector in municipal service delivery. Municipalities will be free to cooperate with the
private sector to plan and implement service delivery, to finance service delivery through charges levied by
commercial service delivery enterprises, and to use private capital for investment in municipal service
delivery mechanisms.
Coordination between central ministries and municipalities. Municipalities are free to cooperate with other
government entities in order to plan and implement service delivery. Municipalities are required to
coordinate the planning and implementation with the central ministries to ensure that no gaps or
duplications occur in service delivery.
Sources of finance for municipal operations, investment and service delivery. Municipalities may use the
following forms of finance: The safayi (‘cleaning charge’); a real property tax ; new rates, fees, taxes and
charges, provided that they are progressive and there is consultation prior to being levied; borrowing from
local sources within a national regulatory framework; budget deficits, within a national regulatory framework
and when there is urgent need; service fees charged by economic enterprises, provided that the level of the
fees is set through a consultative involving management, the municipality and the public; budget support
from the Ministry of Finance, using a formula that allocates funds according to the relative size of the
population and which gives incentives for revenue raising; budget of Central Ministries transferred to
municipalities to fund functions delegated to the municipalities.
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2. Background of the SNGP and the Prioritization Process
2.1 Development of the SNGP
On 11 May 2008, H.E. the President Hamid Karzai issued a decree ordering the development of a new Subnational
Governance Policy. The decree ordered IDLG to lead the development process, in cooperation with the key ministries,
directorates and commissions of the government, including the Ministries of: Agriculture, Irrigation and Livestock;
Communications and Information Technology; Counternarcotics; Economy; Finance; Interior; Justice; Labour, Social
Affairs, Martyrs and Disabled; Mines and Industries; Public Health; Public Works; Rural Rehabilitation and
Development; Urban Development; Women’s Affairs. It was also to include the Independent Election Commission, the
General Independent Administration for Anti-Corruption, the Office of the Mayor of Kabul Municipality, the Office of
Geodesy and Cartography, the Central Statistical Office, the Office of Administrative Affairs, the Secretariat of the
Council of Ministers and the Independent Administrative Reforms and Civil Service Commission.
To initiate the process, a Deputy-Ministerial Level Policy Drafting Committee established a set of working groups to
define the main content of the policy, each chaired by IDLG with a co-chair from another government agency. The
working groups addressed four different thematic areas: roles and responsibilities of Provinces, Districts and Villages;
Municipalities; Women, Youth, Civil Society and the Private Sector; Subnational Finance and Planning. The members
of these working groups were Director General-level staff of the Ministries mentioned in the Presidential Decree. In
total, these groups met 16 times for a total of 26 full working days, between 15 th June and 27th August of 2008. After
the completion of the Working Group process, IDLG worked intensively with its partners to produce the first draft of
the policy. The first draft was, finally, presented to the Policy Drafting Committee. The Policy Drafting Committee then
authorized a series of consultations with members of the international community in order to further improve the
policy. Working with its partners from the international community, IDLG also conducted a consultation with 802
members of provincial councils, subnational administrations and civil society.
As a result of the international consultation, subnational consultation and ongoing discussion, the policy was
progressively improved over five 5 meetings of the Policy Drafting Committee, until it could be submitted to a
Cabinet-level Policy Review Committee. After just two meetings of the Review Committee, a comprehensive draft of
Afghanistan’s first ever subnational governance policy was submitted to the Cabinet of the Government of
Afghanistan. It was reviewed twice by Cabinet, before being finally approved in May 2010.
2.2 Implementation of the SNGP
IDLG began implementation of the Subnational Governance Policy almost immediately, with notable progress in some
areas, such as senior subnational appointments and reforms of subnational finance. However, as 2010 progressed, it
became clear that two major recent developments would have very significant consequences for the implementation
of the Subnational Governance Policy: the Kabul Process and Transition. The Kabul Process was based around an
attempt to reinvigorate development efforts in Afghanistan and involved Ministries identifying priorities through a
new set of National Priority Programmes, and as the process unfolded it became clear that the many activities and
reforms laid out in the Policy ought to be subject to this prioritization process. Likewise, it became clear that
Transition, the handover of security in the provinces from international security forces to national security forces, also
required prioritization of the Policy, since several urgent subnational governance reforms were clearly needed to
support security reforms. Thus, one of the first deliverables that IDLG has promised in the Local Governance NPP is a
new implementation framework for the Subnational Governance Policy, one which identifies key priorities for the
Government and the Transition process.
In order to prioritize the SNGP, IDLG conducted a detailed review of the implementation of the SNGP. The review
provided a summary of the SNGP document, and then for each part of the policy (as stated in the summary), it
showed: i) what has been done, (iii) what remains to be done, (iii) what implementation issues have been
encountered, and (iv) what the overall progress level. Based on this detailed description and analysis, it presented
some of the key conclusions that have emerged from implementation to date these being:
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1.
2.
3.
4.
5.
6.
7.
Much of the Policy implementation is being delivered programmatically. There is a large amount of
technical field work under way, such as training of Provincial Councils in roles and responsibilities and
development of Municipal Financial Management Capacity, which falls under the heading of SNGP
implementation. This is generally being delivered programmatically, through donor-funded programmes.
Many major results are pending completion of the legislative reform process. In many cases, work is being
deferred until new laws, such as a new Local Administration Law, can be enacted. This may generate delays
of a year or more, which is a concern.
A prioritization of the Policy has emerged from action and experience. The Policy is long and covers many
topics, and IDLG has limited resources. In implementing the Policy, IDLG has focused on a few key areas such
as subnational finance, subnational appointments, Public Administration Reform, PGO & DGO infrastructure
and district-level councils. More recently, IDLG has formulated priorities for Local Governance Reform in the
National Priority Programme for Local Governance, many of which are aligned with the Policy: the NPPLG is
therefore itself a prioritization of the SNGP. Although it has not been completely formal, IDLG has in fact
already prioritized the policy in more than one way.
IDLG has backed off areas outside strict subnational governance. IDLG has not engaged in a number of
aspects of the policy, for example with Local Economic Development, Anti-Corruption and Youth. These are
areas which, typically, although important at the subnational level are not core subnational governance
issues.
Financial Reform has been the most successful area for inter-agency cooperation. Most of the areas of the
SNGP require cooperation of other agencies to implement, and IDLG has worked very successfully with the
Ministry of Finance (MoF) to date. IDLG and MoF have jointly developed a detailed set of activities to achieve
the objectives of the SNGP, compromising as necessary and treating the SNGP as a set of objectives, not as a
blueprint.
A number of the objectives in the SNGP do not now seem realistic. There are some sections of the Policy, or
stipulations in it, that do not seem achievable by early 2015- developing a comprehensive system of villagelevel administration being one.
Security, justice and interim representative arrangements remain a challenge. The issue of district councils
and village councils, and the issue of how Governors interact with security and justice institutions, does not
seem closer to being solved, despite being covered in the Policy and despite the efforts of all parties to date.
Based on the analysis provided, the report than developed a set of recommendations for improving implementation
in the future, which were:
1.
2.
3.
4.
Clarify the model of subnational governance underlying the reforms that will be implemented. Through
most of the SNGP, the underlying model of subnational governance is the current model, with improvements,
for example clearer roles and stronger institutions for planning and accountability. In prioritizing the policy
and designed detailed activities, the fact that this is the intended model should be made explicit.
Formalize the emerging prioritization. The priorities for SNGP implementation do not need to be created
from nothing: three very strong sources of guidance exist. The first is the priorities that have already emerged
from work done so far. The second is the prioritization that has emerged from the NPPLG. The third is the
policy priorities identified during the Transition process, which are in fact quite similar to the priorities
already implicitly identified by IDLG. The formal prioritization of the SNGP should be based closely on these
sources of guidance.
Clarify roles and responsibilities without waiting for completion of the legislative process. The subnational
governance institutions need more clarity about their roles and authorities now- waiting for a year or more is
not feasible, especially in the context of Transition. IDLG should get agreement on the existing legal basis for
subnational governance, and being work on clarifying roles and responsibilities, both through
formal/administrative channels and other channels, as soon as possible.
Get more clarity about the implementation channels for different parts of the Policy. There are a number of
different channels by which parts of the Policy can be implemented- for example the legal channel and the
programmatic channel. In future implementation, clarity about which channels are used is essential.
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5.
6.
7.
Use the model of subnational financial reform for engaging with other agencies. The model for engagement
with the Ministry of Finance can be generalized and applied to the engagement with other agencies.
Improve Monitoring & Evaluation of Policy Implementation. IDLG should have more oversight of activities
that count as SNGP implementation, at least those that fall under a newly-identified set of priorities.
Consider new approaches for the toughest problems. IDLG and other stakeholders have been trying to solve
the issues of district-level and village-level representation and the issue of Governor interaction with security
and justice agencies for several years now. The easy and obvious approaches have been tried and have not
been successful. New approaches are needed- for example, the issue of local councils could be addressed
from a legal or Constitutional angle.
The recommendations were presented to the SNG donor group in January 2012 in a meeting co-chaired by IDLG and
UNAMA, where they were endorsed. The revised implementation framework was based on these recommendations.
2.3 Prioritization of the SNGP
As recommended in the Policy Implementation Report, the approach to prioritization was to recommend an area of
the Policy as a priority if it has already been prioritized either through previous action, in the NPP or as a result of the
Transition process. An outline of the priorities identified through each of these areas is as follows:



NPP Sub-Components with major SNGP linkages. By definition, all of the outcomes and deliverables of the
NPP are priorities. In addition, most of the parts of the NPP relate to the SNGP in some way. In particular, a
number of the sub-components specifically link to the content and objectives of the NPP, and it is particularly
clear in this case that these parts of the NPP should be treated as priorities for SNGP implementation. These
sub-components include: legislative reform; sub-national finance and planning; provincial and district
infrastructure & equipment provision; Public Administration Reform; Provincial Strategic Planning; provincial
municipal administrations refurbishment and equipment; municipal capacity development and administrative
reforms; Provincial Council capacity development
Prioritization from Action. Areas in which IDLG has been very actively engaged since the approval of the
policy are equally obviously to be treated as priorities. Some of the major areas of effort on the part of IDLG
that therefore emerge as priorities are: roles and responsibilities of local governance entities; subnational
planning and finance; senior subnational appointments; Public Administration Reform in PGOs and DGOs;
infrastructure for PGOs and DGOs; district-level and village-level representation.
Transition Priorities. Some additional policy priorities emerged as a result of the first Transition workshop.
This workshop identified a number of policy reforms that will be needed to ensure Transition. Given the
importance of Transition, these should obviously be treated as priorities. The reforms mentioned related to:
Public Financial Management at provincial level (for example increased provincial role in budget planning and
execution); Public Administration at provincial level; strengthen the role of the Provincial Administration in
the security and justice sectors; responsibilities for municipal governance; district level representation;
coordination with parallel structures at provincial level.
Using these already-identified priorities as the basis for prioritization for this implementation framework ensures that
the prioritization is based on experience and real needs.
To develop a single list of priorities based on the three sources above, IDLG reviewed each of the 64 points in the
SNGP summary that had previously been developed. For each part, it was determined whether or not that part could
be considered a priority based on the NPP, the prioritization from action or the Transition workshop. If any part was a
priority according to one or more of those sources, it was recognized as a priority overall. Based on this process, 34
points of the 64 point summary were recognized as priorities for implementation. However, these could be
reorganized easily into 6 overall areas, as follows:

Priority 1- Basic functions and relationships of local entities. Functions of the Provincial Governor (PG),
Functions of the District Governor (DG), Function of Provincial Line Departments (PLD) of Ministries, Function
of District Offices (DOs) of Ministries (§1-7), Service delivery implementation responsibilities (§16), Role of
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



Governor in general service delivery (§17), Role of Governor in security sector (§18), Role of Governor in
justice sector (§19), Function of the Provincial Development Committee (PDC), Function of the Provincial
Administrative Assembly (PAA),
Priority 2- Institutions for planning and implementing service delivery at the local level. Identification of
functions and budget for delegation (§10), Application of provincial allocation formula (§11), Announcement
of provincial budget ceilings (§12), Financing of provincial plan (§14), Annual provincial planning process
(§15),
Priority 3- Increasing the organizational effectiveness of the Governors’ Office. Appointment of subnational
officials (§25), Public Administration Reform at subnational level (§26), Public Financial Management at
provincial and district level (§29), Infrastructure and equipment for provincial and district administrations
(§30)
Priority 4- Making provincial and district governance more accountable. , Function of Provincial Councils
(§8)), Function of District Councils (§9), Role of the Provincial and District Councils (§22), Interim
arrangements for district-level representation (§22)
Priority 5- Municipal service delivery cycle. Function of the Municipality, Function of the Mayor, Function of
the Municipal Council, Function of the Municipal Administrative Council, Municipality relations with other
government structures (§40-§44), Scope of annual planning of service delivery by municipalities (§46),
Process for annual planning of service delivery by municipalities (§47), Municipal capacity development.
Municipal revenue administration, Municipal Financial management (§55-57)
(Reference numbers refer to the section of the Policy, according to the Summary developed during the review of
implementation.)
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