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Issues Paper Series Cops or Robbers? The Struggle to Reform the Afghan National Police Andrew Wilder July 2007 Issues Paper Series Cops or Robbers? The Struggle to Reform the Afghan National Police Andrew Wilder July 2007 © 2007 Afghanistan Research and Evaluation Unit. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, recording or otherwise without prior written permission of the publisher, the Afghanistan Research and Evaluation Unit. Permission can be obtained by emailing [email protected] or by calling +93 799 608 548. Cops or Robbers? The Struggle to Reform the Afghan National Police About the Author Andrew Wilder is Research Director for Politics and Policy at the Feinstein International Center at Tufts University in Boston. From January 2002 until April 2005 he helped establish and served as the director of the Afghanistan Research and Evaluation Unit (AREU). Between 1986 and 2001 he worked for several different international NGOs managing humanitarian and development pro- grammes in Pakistan and Afghanistan. He is author of The Pakistani Voter (Oxford University Press, 1999), co-author of A Guide to Government in Afghanistan (AREU, 2004), and has written several book chapters, journal articles and briefing papers relating to politics in Pakistan and Afghanistan. He can be contacted at [email protected]. About the Afghanistan Research and Evaluation Unit (AREU) The Afghanistan Research and Evaluation Unit (AREU) is an independent research organisation head- quartered in Kabul. AREU’s mission is to conduct high-quality research that informs and influences policy and practice. AREU also actively promotes a culture of research and learning by strengthen- ing analytical capacity in Afghanistan and facilitating reflection and debate. Fundamental to AREU’s vision is that its work should improve Afghan lives. AREU was established in 2002 by the assistance community working in Afghanistan and has a board of directors with representation from donors, UN and other multilateral agencies, and non- governmental organisations (NGOs). Current funding for AREU is provided by the European Commis- sion (EC), the United Nations High Commissioner for Refugees (UNHCR), the United Nations Chil- dren’s Fund (UNICEF), the World Bank, and the governments of Denmark, Norway, Sweden, Switzer- land and the United Kingdom. i AREU Issues Paper Series Acknowledgements This report would not have been possible without the help provided by many people. In particular, I would like to acknowledge the invaluable assistance of an Afghan colleague (who prefers to remain anonymous) who helped conduct and translate many of the interviews for this study. I would like to say a special word of thanks to Irina Kaye Mueller-Schieke from the German Embassy in Kabul who provided valuable insights on police issues and patiently answered many follow-up email questions, as well as to Paul Fishstein of AREU for his constructive suggestions and constant support during the writing of this paper. I would also like to thank Ambassador Helmut Frick, the former German Special Representative for Security Sector Reform, Col. Eric Belcher from CSTC-A’s Police Reform Division, and Shahmahmood Miakhel and Eckhardt Schiewek from UNAMA, who all generously gave time and information that helped inform this paper. I am very grateful to Martine van Bijlert from the Office of the EU Special Representative, Bill Byrd from the World Bank, Angelic Little-Turner from the US Department of State’s INL/Police Programme, Thomas Ruttig who was formerly with the German Embassy in Kabul, Mark Sedra from SOAS, Col. Jack Stankiewicz from CSTC-A, Dawn Stallard, and to three anonymous peer reviewers for taking the time to review and provide extremely useful comments on draft versions of the paper. Thanks also to Anja Havedal of AREU for her careful editing and production of this paper. I am very grateful to Alan and Betty Stallard who provided me with the quiet office space (and many cups of tea), without which this report would still be unfinished. Finally, I would like to thank all those who fit me into their busy schedules and agreed to be interviewed for this study, and provided me with most of the information on which this report is based. While this paper has benefited tremendously from the information provided by those acknowledged above, the views and opinions expressed are those of the author. Andrew Wilder, July 2007 ii Cops or Robbers? The Struggle to Reform the Afghan National Police Table of Contents About the Author ................................................................................................. i About the Afghanistan Research and Evaluation Unit (AREU)........................................... i Acknowledgements...............................................................................................ii Glossary.............................................................................................................v Acronyms...........................................................................................................v Executive Summary ............................................................................................vii 1. Introduction.................................................................................................1 2. Overview of the Police Sector...........................................................................3 2.1 Background............................................................................................3 2.2 Police Organisation and Responsibilities..........................................................4 2.3 ANP Size................................................................................................7 2.4 Policewomen..........................................................................................9 2.5 Composition of the ANP........................................................................... 11 2.6 Afghanistan National Auxiliary Police (ANAP).................................................. 13 3. International Actors and Police Sector Coordination.............................................18 3.1 International Actors................................................................................ 18 3.2 Police Sector Coordination........................................................................ 25 4. Police Reform Activities................................................................................29 4.1 Training and Mentoring............................................................................ 29 4.2 Equipment and Infrastructure.................................................................... 35 4.3 Restructuring and Reforming..................................................................... 37 5. Key Issues and Recommendations....................................................................43 5.1 A Shared Vision and Strategy..................................................................... 43 5.2 Police Reform Dependent on Judicial Reform................................................. 49 5.3 Reforming the Ministry of Interior............................................................... 52 5.4 Quality versus Quantity of Police................................................................ 56 5.5 Fiscal Sustainability of the Security Sector .................................................... 58 6. Summary of Recommendations........................................................................62 7. Conclusion.................................................................................................67 Bibliography......................................................................................................68 Appendix: List of Interviews..................................................................................73 Recent Publications from AREU..............................................................................75 iii AREU Issues Paper Series Figures, Tables and Boxes Figure 1: Ministry of Interior Organigram..................................................................5 Figure 2: ANP Regional Commands..........................................................................6 Figure 3: US Support to the ANP 2002-07 ................................................................20 Figure 4: Structure of International Police Reform Coordination ...................................26 Figure 5: ANP Killed and Wounded in Action.............................................................45 Figure 6: Security Sector Expenditures 1382-83 (2003-05) ..........................................49 Figure 7: The Rapidly Rising ANP Wage Bill...............................................................59 Table 1: ANP Composition and Size........................................................................12 Table 2: ANP Salary and Benefit Costs, FY1386 (2007-08)............................................23 Table 3: Contributions to LOTFA, 2002-06 (in US$ ‘000) .............................................24 Table 4: LOTFA Annual Police Remuneration Costs FY1382-88......................................24 Table 5: Before and After Pay and Rank Reform........................................................39 Box 1: ANAP Recruitment....................................................................................16 Box 2: CTC and RTC Training Courses .....................................................................30 Box 3: Compulsory Military and Police Service in Afghanistan.......................................32 Box 4: The Five Phases of Rank Reform...................................................................41 Box 5: Are the Police Becoming “Cannon Fodder”?....................................................46 Box 6: The Case for a Minimal Role for the Police......................................................48 Box 7: What Is More Destabilising — Reforming or Not Reforming?..................................56 iv Cops or Robbers? The Struggle to Reform the Afghan National Police Glossary saranman commissioned police officer satanman non-commissioned police officers satunkai patrolmen takhsis budget allotment tashkil staffing establishment detailing the number of sanctioned posts at each grade level Acronyms ABP Afghan Border Police AGO Attorney General’s Office AHP Afghanistan Highway Police ANA Afghan National Army ANAP Afghan National Auxiliary Police ANCOP Afghan National Civil Order Police ANP Afghan National Police ANSF Afghan National Security Forces AUP Afghan Uniformed Police CENTCOM Central Command CNPA Counter Narcotics Police of Afghanistan CSTC-A Combined Security Transition Command — Afghanistan CTC Central Training Centre DDR Disarmament, Demobilisation and Reintegration DIAG Disbandment of Illegal Armed Groups EC European Commission ESDP European Security and Defence Policy EU European Union EUPOL European Union Police Mission in Afghanistan EUSR Office of the European Union Special Representative FRU Family Response Unit GAO Government Accountability Office v AREU Issues Paper Series GPPO German Police Project Office ICPC Interim Criminal Procedure Code INL Bureau of International Narcotics and Law Enforcement Affairs (US) IPCAG Interagency Police Coordinated Action Group IPCB International Police Coordination Board ISAF International Security Assistance Force JCMB Joint Coordination and Monitoring Board KIA Killed in Action KPA Kabul Police Academy LOTFA Law and Order Trust Fund for Afghanistan MoD Ministry of Defence MoF Ministry of Finance MoI Ministry of Interior NATO North Atlantic Treaty Organisation NISS National Internal Security Strategy NPP Norwegian Police Project NSD National Security Directorate PAG Policy Action Group PRD Police Reform Directorate PRT Provincial Reconstruction Team RTC Regional Training Centre SSR Security Sector Reform SWAT Special Weapons and Tactics TIP Transition Integration Programme TFP Task Force Police Directorate UNAMA United Nations Assistance Mission in Afghanistan UNDP United Nations Development Programme UNODC United Nations Office on Drugs and Crime vi
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