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Viewing cable 09KABUL1016, WARDAK PROVINCE WARILY ENGAGING IN AFGHAN PUBLIC
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Reference ID | Created | Released | Classification | Origin |
---|---|---|---|---|
09KABUL1016 | 2009-04-22 07:29 | 2011-08-24 01:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Kabul |
VZCZCXRO5769
OO RUEHDBU RUEHPW
DE RUEHBUL #1016/01 1120729
ZNR UUUUU ZZH
O 220729Z APR 09
FM AMEMBASSY KABUL
TO RUEHC/SECSTATE WASHDC IMMEDIATE 8568
INFO RUCNAFG/AFGHANISTAN COLLECTIVE IMMEDIATE
RUEKJCS/OSD WASHINGTON DC IMMEDIATE
UNCLAS SECTION 01 OF 03 KABUL 001016
SENSITIVE
SIPDIS
DEPARTMENT FOR SRAP, SCA/FO, SCA/A, EUR/RPM
STATE PASS USAID FOR ASIA/SCAA
E.O. 12958: N/A
TAGS: PGOV PREL AF
SUBJECT: WARDAK PROVINCE WARILY ENGAGING IN AFGHAN PUBLIC
PROTECTION PROGRAM
REF: A. KABUL 897
¶B. KABUL 937
¶1. (SBU) Begin Summary. The pilot Afghan Public Protection
Program (AP3) is slowly taking shape with its first Afghan
Public Protection Force (APPF) deployed in Jalrez District in
Wardak Province. The creation of the Afghan-led force is
proving to be a slow process, but one designed to build a
long-term commitment by the local population for the program.
Recruiting for the second training class from the Nerkh
District has proven difficult, resulting in the postponement
of the start date for the class as the Wardak governor and
U.S. military engage local Afghan elders and leaders. A key
vulnerability of the AP3 will be its sustainability, both
because to be sustainable it must rely on the Ministry of
Interior (MoI) for APPF salaries and equipment, and because
it is seen by some in the Afghan National Police (ANP) as
undermining ANP funding and authorities. Additionally,
public perceptions of the AP3 are mixed and continue to be
shaped through local shuras and engagement with leaders; most
leaders likely will remain wary until the program proves it
can meet its promise of increased security. The Taliban is
expected to test the APPF early in an effort to undermine
confidence in the program, and it remains to be seen whether
the ANP will work cooperatively with the APPF when these
tests present themselves. End Summary.
Background
----------
¶2. (SBU) The pilot AP3 is slowly taking shape with its
first APPF deployed in Jalrez District in Wardak Province.
The AP3 is designed as an Afghan program, run by the Ministry
of Interior (MoI), with its recruits selected with the full
approval of the provincial governor and the community
councils established by the Independent Directorate of Local
Governance (IDLG). The APPF is not intended to be a "tribal"
or "militia" force, but an Afghan National Security Force
(ANSF) organization providing community-based security. If
successful, the AP3 will supplement the Afghan National
Police (ANP) and provide enhanced security to extend the
legitimate governance of the Government of the Islamic
Republic of Afghanistan (GIRoA) to designated districts in
key provinces. The program,s implementation will hinge on
the Afghans themselves and key local government elements,
particularly the Operational Command Center-Provincial
(OCC-P), the District Community Council, and the ANSF, who
will lead the AP3 with Special Forces (SF) elements training,
advising and assisting through the initial phases of each
class of APPF deployment. SF also provides initial quick
impact project support and assessment for long term
development of the AP3 Districts. The program seeks to gain
and maintain popular support for the APPF through coordinated
and synchronized distribution of humanitarian and quick
impact projects followed by long term development programs in
districts that agree to provide recruits for the program.
These activities will be transferred based on conditions to
the conventional unit battle space owner during the hold
phase in each district.
¶3. (SBU) Special Forces (SF) and CJTF-101 have constructed
five effects and associated measures of effectiveness to
track the success of the AP3. These measures will be
reviewed periodically and refined as necessary. The current
effects measurements include enhancing the GIRoA legitimacy
in Wardak by: preventing emergence of an insurgent popular
support base, protecting the population from insurgent
attacks, preventing insurgent influence on the population,
disrupting insurgent freedom of action, and protecting the
freedom of movement of friendly forces.
First APPF Deploys in Jalrez
-----------------------------
¶4. (SBU) The first 243 trainees completed their 21 day
training course on March 26 and returned to Jalrez District
in Wardak shortly thereafter. Significantly, Combined Joint
Task Force (CJTF) 101 reported that all trainees reported for
duty after the course. The same is not always the case for
Afghan National Police (ANP) trainees. Since their arrival
in Jalrez, the APPF has integrated into the district and
completed a communications exercise to test their alert plan.
Additional exercises are expected. A more important
measurement of the APPF integration and utility, however,
will come when they are called upon to respond to an attack
and whether they stay the course.
KABUL 00001016 002 OF 003
Public Perception
------------------
¶5. (SBU) Local leaders remain wary of the AP3 and are
likely to be convinced to support it only when the program
demonstrates it can meet its promise of increased security.
Pashtun leaders have been particularly suspicious of the
program. Pashtun elders from Khost, Paktia, Paktika, and
Wardak told Special Representative for Afghanistan and
Pakistan (SRAP) Holbrooke thaQthe AP3 is arming, rather than
disarming, local groups and its participants are picked by
local commanders rather than the tribes, with the result that
the AP3 does not enhance community policing.
¶6. (SBU) A key element of U.S. efforts to shape the
support for the AP3 program is civilian assistance and
communications. On the ground, the military has been using
its Commanders Emergency Response Program (CERP) funds to
undertake quick impact projects in the Jalrez District, has
engaged in consistent messaging through shuras and other
leadership discussions to highlight that the APPF is a GIRoA
project, and has provided equipment to the APPF to
demonstrate to incoming recruits the commitment of the GIRoA
to the AP3. For example, humanitarian assistance was
distributed in Jalrez in conjunction with the return of the
APPF class, and a radio station was opened at that time in
the provincial capital. (Note: One issue is the provision of
funds to the MoI; because CERP funds may not be provided to
the MoI, the military is looking at the use of Title 22 ASF
funds for foreign assistance and reconstruction.)
Additionally, a key element of assuring the APPF remains an
Afghan program is the acceptance of local governance. This
is proving more challenging in Wardak since the PRT is
Turkish led. Not only has Turkey made clear it will not
participate in the AP3, but the Turkish PRT spends less
effort on governance capacity building. To off-set this
issue, CJTF-101 has undertaken added steps to directly engage
with provincial and district officials.
Expanding the AP3 to Nerkh
--------------------------
¶7. (SBU) While CSTC-A has the logistics in place for a
second class of students from the Nerkh District of Wardak
Province, the numbers of recruits continue to rise as
coalition forces, during clearing operations, meet with
success in Nerkh and the surrounding areas. The target
number for the course is 250 students, but an original list
of 200 students was reduced to 30 names, likely as a result
of the Nerkh District Administrator pulling the names due to
intense Taliban activity. Given the lack of registered
students, the start date for the training session has been
pushed back. Coalition forces are carrying out routine
shaping and clearing operations in Nerkh District. While the
AP3 is not the genesis for these operations, the operations
will enhance the perception of the GIRoA to increase APPF
recruitment. According to a weekly AP3 update by CJTF 101,
the battle space owner in Nerkh reported that the district is
clear enough to promote the introduction of AP3 into the
area, and the next step is to return to additional shaping
operations to promote public support with and through the
governor so that local elders and leaders will provide a list
of candidates for the next AP3 course. Discussions are
underway as to which district will be the third, Chak or
Sayyidabad. As with Jalrez, the location and sequencing of
the APPF is set by the governor; this local ownership of the
program is essential to its success.
Sustainability a Challenge
---------------------------
¶8. (SBU) The key vulnerability of the AP3 is its
sustainability as a force. Especially problematic is the
will and capability of the MoI to maintain the program. From
the logistical standpoint, in addition to chronic graft and
corruption, the MoI,s inability to regularly pay the ANP is
a serious problem. Since the APPF will be paid monthly by
the MoI using the same system as the ANP, a failure to pay
APPF salaries could bring an early break-down in the AP3.
The goal remains ensuring that AP3 is an Afghan-led program,
therefore it is imperative to ensure that systems for funding
and logistic support for both the APPF and ANP are set in
place at the national level of the MOI. If this does not
occur, the U.S. will be ensnared into sustaining the program
or watching it fail through lack of GIRoA ability to
effectively manage its security forces. An additional
challenge is the fact the APPF falls under the ANP.
KABUL 00001016 003 OF 003
(Comment: The ANP tashkil is limited to 82,000 with 81,000
currently on the books. Increases in the AP3 will push the
numbers of the ANP beyond the authorized limit. Who is
responsible for paying salaries over the next year has yet to
be resolved. While APP forces are currently being paid with
MoI funds, Minister Atmar expects that the Law and Order
Trust Fund (LOTFA) will soon assume responsibility and
reimburse the MOI. The international community is currently
divided over whether or the use of the LOTFA to fund what
some view as a risky pilot program is appropriate. End
Comment.) In Jalrez, this poses particular problems since
the ANP have not gone through reform training. CJTF is
working with CSTC-A to get the Jalrez ANP into a Focused
District Development (FDD) program on 19 April and provide
them with better equipment. This should help reduce the
chances of the ANP strong-arming the APPF for their equipment.
UK and Canadian Officials Worry About APPF in RC-South
--------------------------------------------- ---------
¶9. (SBU) During an embassy roundtable discussion on April
16 regarding issues relating to RC-South, UK and Canadian
officials expressed concerns about rushing to establish an
APPF in Kandahar or Helmand. They noted that the test
conditions in Wardak are not the same as in the south since
the population is mostly Pashtun, unlike the multiple ethnic
groups in Wardak. They also expressed concern about the
resource-intensive nature of the AP3, which has required a
major outlay of personnel and funding by U.S. Special Forces,
the MoI, and the ANA. They said the ANA simply does not have
the troops to spare for the AP3. (Comment: The ANA and MOD do
not pay additional costs as a result of the AP3, nor do the
ANA participate in the program. The ANA supports security
operations when required to help establish the conditions to
allow the ANP and the APPF to take over the "hold" mission
from the ANA. End Comment.) U.S. officials noted that the
AP3 is a pilot program, limited to Wardak Province, but the
UK and Canadian officials pushed back noting that MoI
Minister Atmar has stated publicly his desire to see the APPF
replicated in the south. Rather, they recommended that more
effort be invested in the ANP, including training and an
increase in the tashkil level.
RICCIARDONE