ATTACHMENT_J.12_-_RAPID_ASSESSMENT_REPORT.pdf

RAPID ASSESSMENT OF

SERVICE DELIVERY IN KEY

PUBLIC SERVICES

WORKING DRAFT

JUNE 5, 2016

ATTACHMENT J.12

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 1

TABLE OF CONTENTS

SUMMARY OF RECOMMENDATIONS 2

SERVICE DELIVERY ASSESSMENTS

MINISTRY OF INTERIOR – TRAFFIC DIRECTORATE 5

OBTAINING NEW DRIVERS LICENSE 7

OBTAINING REPLACEMENT DRIVERS LICENSE 11

RENEWAL OF DRIVERS LICENSE 15

CHANGE IN DRIVERS LICENSE CATEGORY 18

NEW VEHICLE REGISTRATION 22

RENEWAL OF VEHICLE REGISTRATION 26

REPLACEMENT OF VEHICLE REGISTRATION 30

MINISTRY OF INTERIOR – TAZKERA OFFICE 34

OBTAINING NEW TAZKERA 36

OBTAINING REPLACE TAZKERA 40

AGE CORRECTION IN TAZKERA 44

CHANGE IN PERMANENT RESIDENCY IN TAZKERA 48

ATTESTATION OF TAZKERA 53

MINISTRY OF LABOR – WORK PERMIT DIRECTORATE 56

ISSUANCE OF WORK PERMIT FOR FOREIGN NATIONALS 57

KABUL MIUNICIPALITY 60

ISSUANCE OF SMALL BUSINESS PERMITS 62

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 2

SUMMARY OF

RECOMMENDATIONS

Background

According to the 2015 edition of the “Survey of the Afghan People” conducted by The Asia Foundation 89% of the population says that corruption is a problem in their daily life.

The purpose of the AERCA project is to support the Government to reduce corruption and improve the delivery of 1-3 priority public services important to most Afghan citizens in one year. Modest improvements in these services along with some reduction in petty corruption over a one-year period could encourage public confidence in the NUG to deliver on reform promises.

This is a “Quick Impact” bottom up effort that will be implemented through the concerned ministries, further supported by civil society accountability activities, public satisfaction surveys, and a media campaign to highlight the government’s successful service improvements.

In order to quickly identify those public services for reform, the project conducted a one-month rapid mapping and evaluation exercise on 16 public service processes in order to determine which ones would be most favorable for improvement in one year based in the number of people served, the feasibility for reform, regulatory ease, and political will to reform inside the relevant Ministry.

Summary Recommendations

Based on the initial findings from the mapping and evaluation exercise, we recommend a parallel approach to process improvement moving forward.

The project will provide direct service delivery improvement support to the Ministry of Interior (MoI) to improve the Driver’s License and the Tazkera issuance process; and Kabul Municipality to improve the Small Business License process.

The project will simultaneously provide limited indirect assistance to Ministry of Education (MoED) to help them achieve the “last mile” of their existing service delivery improvement initiative regarding the issuance of High School Certificates nation-wide. “Indirect” means that no technical assistance is required, but only infrastructure support, e.g. computers, printers, and Internet connectivity that will be implemented by the MoED.

Direct Support

• MoI: Driver’s License

• MoI: Tazkera (National ID)

• Kabul City: Small Business License

• MoED: HS Certificate

Indirect Support

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 3

Collectively these services affect an estimated 2.5 million citizens every year, or about 8% of the population of Afghanistan. Modest improvements in these services along with some reduction in petty corruption over a one-year period could encourage public confidence in the NUG to deliver on reform promises.

Direct Improvement Support

The project will work directly with the Ministry of Interior (MoI) inside its Directorate of Traffic to improve the Driver’s License issuance process and inside the Directorate of Population Registry to improve the existing Tazkera issuance process. We will also work with Kabul Municipality inside the Market Control Department to improve the small business license issuing process. Direct support provided may include technical and advisory assistance, staff training and mentoring, office equipment, and facilities improvement, all as needed to meet the new service process performance goals and citizen expectations.

Driver’s License

Summary Evaluation:

People Served Feasibility for Reform Regulatory Ease Political Will Rating Medium Medium Medium High Very High High

The Traffic Directorate in Kabul is ill equipped to administer the issuance of driver’s licenses for the drivers of the 650,000 vehicles on the city’s roads. The Directorate’s antiquated record-keeping, inefficient processes, and capacity constraints have led to delays in getting driver’s licenses and given rise to well-documented instances of bribery. It has been reported that only 40% of licenses are obtained legitimately.

Recently, the Directorate developed a 5-year modernization plan that was approved by both the President and the Cabinet, and embraced by Ministry leadership to enact reforms. The opportunity for “early wins” in the first 12 months of the 5-year plan makes this a viable option for service improvement.

Tazkera

Summary Evaluation:

People Served Feasibility for Reform Regulatory Ease Political Will Rating High Medium High Medium Very High High

The government’s vision for an e-Tazkera solution is appropriate but will take many years to implement. In the interim, the Tazkera Office is very eager to streamline a bundle of identity related processes to ease the daily congestion, reduce wait times, reduce exposure to corruption, and enhance the customer experience at its current location. The practicality of implementing meaningful reforms coupled with the high political will for change makes this Directorate an attractive option for service improvements. Any improvements made to the existing process will support the longer-term e-Tazkera solution.

Small Business License

Summary Evaluation:

People Served Feasibility for Reform Regulatory Ease Political Will Rating Medium High Medium High Medium Very High High

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 4

The Municipality suffers from a substantial lack of information related to small business licensing. This information deficit has fostered widespread corruption in the collection of fees, loss of revenue to the Municipality, and uncoordinated planning for Municipal services that might otherwise benefit small businesses.

The new Acting Mayor is eager for reform and has the will to do so. H has given his personal pledge to provide unflinching support for the reforms supported by the project.

Indirect “Last Mile” Assistance

The project will also provide indirect assistance to the Ministry of Education (MoED) to complete the roll out of its new High School Certificate issuance system to 30 provinces.

The Ministry has developed a comprehensive solution to remedy inefficiencies and reduce corruption in the distribution of High School Certificates. Central to their solution is the Certificate Management Information System. The business rules, validation controls, and security features built into the system is designed to eliminate errors and reduce exposure to corruption. The MoED requires external support to procure industrial quality printers and to build-out the relatively simple IT infrastructure in 30 more provinces.

Timely investment will allow the Ministry to distribute (nationwide) High School Certificates to the current graduating class within a week of their graduation, which is scheduled for the end of 2016.

The remainder of this working document contains the raw data collected and evaluated as part of this rapid assessment exercise.

SERVICE DELIVERY

ASSESSMENTS

I. MINISTRY OF INTERIOR – TRAFFIC DIRECTORATE

IMPORTANCE OF THE SERVICES

Kabul Traffic Directorate is one of the most important government service delivery institutions. On a daily basis, an average of more than 400 customers visit the Vehicle Registration Office for various purposes such as new vehicle registration, renewal, replacement and etc. It is estimated that in Kabul city alone, the Directorate is administering over one million registered vehicles.

While the number of vehicles on the road has increased significantly since 2001, very little improvements have been done in this Directorate to keep pace with the growth in drivers and vehicles. This includes improvements to increase the Directorate’s Tashkeel, basic infrastructure improvements, systems enhancement, and capacity building for staff.

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 5

ORGANIZATIONAL STRUCTURE

The current organization structure is 30 years old and needs to be upgraded to include additional staff. The budget for1389 budget shows a total 3,617 employees in the Traffic Department. This number comprises 470 officers, 3,073 satanmans, and 64 satoonkai.1

In the past, registration of vehicle titles used to be a judicial function. During the on-site interview, the officials revealed that according to the Tashkeel, only one individual (Manager) is assigned to each department. The rest of the employees are transfers from other department.

It is worth repeating here that the Traffic Directorate comes under the Taskheel of MoI but that the Provincial Traffic Unit (or Manager) reports to the Chief of Police. This structural anomaly is confusing since the Traffic Directorate (the body responsible for developing traffic rules and regulation) has no authority over those enforcing traffic laws on the street.

GENERAL OBSERVATIONS

The leadership of the department complains about the current system being old and analog.

Few functions in the Traffic Directorate are computerized. All communication is done face-to-face and all documentation requires multiple signatures. Documents up to 40-years old are being stored on-site.

A private company, German Hi-Tech is providing database services to create records for vehicle registration. The terms of reference for the company is very limited as it only operates in 7 zones of the country. Separately, the data from the Customs and Inspection Database is not being used by the Traffic Directorate to confirm registration.

Forged vehicle registration is easily found in the black market and the Traffic Directorate does not have the technology or know-how to detect fraudulent licenses. The only way to find out if a document is fake is to refer to the archive and verify the information. This is a painstakingly long and exhaustive process.

Since the current system does not have the capacity to keep historical records of drivers when they commit accidents or traffic violations. Accordingly, if an individual is banned from obtaining a license in Kabul that person can still go to a different province to get a new license. The officers have no system in place to check whether the applicant is allowed by law to obtain a new license.

Both the driver’s license and vehicle registration processes are very complicated. Meaningful improvements can be accomplished if the system is computerized at the central and provincial level. Currently, there is a manual checks and balances system in place but it is inefficient and causes delays.

Since it can take between one week to one month to register a vehicle; renew or replace a driver’s license, applicants pay unauthorized brokers to get them through the process in a couple days, at a price of up to USD $1,000.

There are not enough Vehicle Inspection Stations.

1 http://moi.gov.af/en/page/9886

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 6

Staffing levels are not adequate to meet current demand.

The Vehicle Registration process is cumbersome and relies on multiple witness attestation.

Overall, the vehicle registration and drivers license process is too centralized. Presently, all documentation goes through the Central (Kabul) Traffic Directorate.

The Traffic Department is largely responsible for issuing national and international driving licenses, registering vehicles, regulating transportation vehicles, traffic law enforcement, road regulations and road construction safety.2 Given this level of responsibility, there was a marked absence of Standard Operating Procedures (SOP) or manuals that provides guidance to the officers at each unit within the Directorate. The current staff lacks the capacity to develop such documents on their own.

A. OBTAINING NEW DRIVING LICENSE

PROCESS

a. Framework

The legal framework governing all the traffic regulations is old and has not been amended or modified for present day needs. The current Traffic Regulation stipulates and covers the following main steps of obtaining a new license— applicants have to be at least18 years old, pass a medical check as well as oral and practical exam. Separately, the Traffic Directorate has formulated additional requirements to complete the process of acquiring a new license. Other than the steps covered by law and mentioned above, any modifications to the existing system needs the approval of the MoI Minister. The translation of the applicable articles from the traffic regulations follows:

Chapter I, Article 2:

1. National Driving License is two pages, size (150x148 mm) and light pink in color.

2. First page of the Driving License must contain background information, blood type, photo, driving license number, issuance and expiry date, place of issuance, signature of traffic manager, and official stamp.

Chapter I, Article 10:

2 http://moi.gov.af/en/page/9886

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Those who are at least18 years old and have passed an oral and practical test as well as medical check are eligible to obtain a license.

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 8

b. Process Map for Obtaining New Driving License

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 9

c. Process Steps for Obtaining New Driving License

Step Description Time

Required Citizen’s Perspective

1.

Form Distribution Officer:

The applicant obtains an application form (cost: 10 Afs) from the Form Distribution Branch of the Traffic Directorate. The applicant must be at least 18 years old, and must have his/her Tazkera and three passport-sized photos.

30 Min Low Frustration

2.

Private and Public Blood Lab:

The applicant’s blood type must be determined at a public or private laboratory outside the Traffic Department. This process is simplified. In the past, the applicants had to use only two designated government hospitals. But due to increasing number of applicants the Traffic Directorate decided to make is open to any hospital, both public and private.

20 Min Low Frustration

3.

Clinic/Doctor:

The applicant reports to the clinic within the Traffic Department for a medical examination, which he/she must pass to proceed. In the past, the applicant had to acquire two separate forms. One that would entail all its information regarding obtaining a new license and a separate one for health check. Recently the applicants acquire only one form and this form entails information both of health and personal information.

30 Min Low Frustration

4.

Driving School:

The applicant is admitted to the Traffic Department Driving School.

12 Day High Frustration

5.

Driving School:

The applicant may study the manual and immediately take the written test, or he/she may take a 10-day course before taking the test. If the applicant does not pass the test, he/she may re-enroll in the course.

30 Min Low Frustration

6.

Driving School:

The applicant takes the practical driving test at another location outside the Traffic Department. The applicant must pass the practical test to proceed, and may re-take it if necessary.

45 Min Medium Frustration

7.

Traffic Manager/Finance Officer:

The Traffic Directorate Manager is present at the practical test site and signs the application and issues an invoice, payable at all banks within the city of Kabul. This process has been simplified recently. It used to be that the applicant would have to visit the Traffic Directorate Manager at his office for signature and then receive the invoice for payment. But now Traffic Directorate Manager is at the site and if the applicant passes the practical test, he signs the document. Also, there is an officer

15 Min Low Frustration

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 10

Step Description Time

Required Citizen’s Perspective from finance department to provide the applicant with an invoice to make the payment.

8. Bank:

He makes the payment at one of the local banks and obtains as receipt.

2hr Medium Frustration

9. Biometric Office:

The applicant reports to the Biometric Branch, where his/her data is recorded.

30 Min Low Frustration

10.

Controller (Mastofiat):

The applicant reports to the Mastofiat (Controller) within the Traffic Department.

The Mastofiat reviews the documents to verify the payment amount and marks them in red if the amount is correct.

30 Min Low Frustration

11.

New Licenses Distribution Officer:

The applicant returns the completed application form to the New Licenses Distribution Office, which produces driver’s license booklet using the information on the application. The license booklet is signed by the official who issued it, the License Officer, and the Traffic Directorate Manager. The application and license booklet are sent to the Traffic Director, and the applicant is informed of the time he/she must collect the license.

1day High Frustration

12.

Traffic Manager:

The Traffic Manager conducts a final review, and then signs and stamps the new driver’s license.

30 Min Low Frustration

13.

Archive:

The application attached with its supplementary documents (bank receipt and lab document on blood type) is sent to the Archive to be filed.

40 Min Medium Frustration

14.

New License Distribution Officer:

The applicant collects the license form the New Licenses Distribution Office.

30 Min Low Frustration

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 11

B. OBTAINING REPLACEMENT DRIVING LICENSE

PROCESS

a. Framework

The legal framework governing all the traffic regulations is old and has not been amended or modified for present day needs. The procedures provided by the Traffic Department shows that applicants who have lost their driving license have to retake the oral exam prior to obtaining a new license. However, this contradicts Article 29, Chapter 3 of Traffic Regulation that does not state if the applicant is required to retake any type of exam (oral or practical).

This article also stipulates that the applicants have to have proof that the loss of a driver’s license has been publicly announced. Officials at the Traffic Department have made it mandatory for applicants to use a government-run advertisement agency for this announcement.

The translation of the article follows:

Article 29, Chapter 3:

In case of loss of driving license, a replacement is issued, as per the bindings of the regulation, once the announcement of loss is made.

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 12

b. Process Map for Obtaining Replacement Driving License

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 13

c. Process Steps for Obtaining Replacement Driving License

Step Description Time Required

Citizen’s Perspective

1.

Form Distribution Office:

The applicant obtains an application form (cost: 10 Afs) from the Form Distribution Office of the Traffic Directorate. The applicant completes an application form. He/she must have three photographs. The form is the same as the one used for obtaining a new driving license or renewal. This form has multiple boxes that provide options for applicants to tick mark depending on the nature of the request.

30 Min Low Frustration

2.

Advertisement Agency (Afghan Elanat):

The applicant makes announcement in one of government run advertisement agency (known as Afghan Elanat) regarding the lost original license. The applicant provides the Traffic Directorate with a clipping from a government-approved newspaper that proves the loss of the license has been announced. This process is mandatory and it is an attempt on retrieving the lost license, 3 Days High Frustration

3.

Clinic/Doctor:

The applicant reports to the Traffic Directorate Clinic for a medical examination. The doctor conduct medical check ups and writes his assessment in the form.

30 Min Low Frustration

4.

Archive:

The applicant is referred to the Archives, where his record are verified and found in the books. Once all the information is found, the applicant is required to take the oral exam

4hr High Frustration

5.

Driving School:

If pass the oral exam, the applicant proceeds to the next step (he is not required to attend the training course).

30 Min High Frustration

6.

Finance Officer:

The applicant reports to the finance officer who issues him/her an invoice.

30 Min Low Frustration

7.

Bank:

The applicant makes the payment at any bank within the city of Kabul.

2hr High Frustration

8.

Replacement Officer:

The applicant submits all documents to a Replacement Officer, who records the information in a new license booklet and informs the applicant of the pickup date.

1 Day High Frustration

9.

Traffic Department Manager:

Before the applicant shows up to pick up the license, the replacement officer brings the new license to the Traffic Department Manager for signature.

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 14

Time

Required Citizen’s Perspective

10.

Replacement Officer:

The applicant picks up the replacement driver’s license from the Replacement Office.

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 15

C. RENEWAL OF DRIVING LICENSE

The legal framework governing all the traffic regulations is old and has not been amended or modified for present day needs. For the renewal of driving licenses, the current traffic regulations require applicants to visit the traffic department if the driving license is expired and request a renewal. It is mandatory that the applicants get pass a medical check. While applicants are not required to take any of the exams (oral/practical) for the purpose of the renewal except in instances where the driver has committed a traffic violation.

The translation of the applicable traffic regulation articles follows:

Chapter 3, Article 25:

Driving license holder must visit the traffic department after the expiry date and make a request for renewal.

Chapter 3, Article 26:

Traffic Directorate will renew a driving license if the health examination (physical and mental check) is passed.

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b. Process Map for Renewal of Driving License

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c. Process Steps for Renewal of Driving License

Step Description Time

Required Citizen’s Perspective

1.

Form Distribution Office:

The applicant submits a completed application form, along with his/her old license and three photographs

30 Min Low Frustration

2.

Clinic/Doctor:

The applicant reports to the Traffic Directorate Clinic for a medical examination.

30 Min Low Frustration

3.

License Renewal Office:

The applicant is referred to the Renewal Office, which determines the fee the applicant must pay, including any penalties for traffic violations, if there is any.

30 Min Low Frustration

4.

Finance Officer:

The applicant is referred to the Financial Officer, who issues an invoice.

30 Min Medium Frustration

5. Bank:

The applicant pays the amount at the bank and gets a receipt.

2hrs High Frustration

6.

License Renewal Office:

The applicant reports to the Driving License Renewal Office and is informed of the pickup date. While the applicant is provided with a pickup date, the responsible officer conducts further processes.

1 Day High Frustration

7.

Traffic Department Manager:

The responsible officer at the Driving License Renewal Office brings the application along with other supplementary documents such as bank payment and old license to the Traffic Directorate Manger for signature.

40 Min Medium Frustration

8.

Driving License Renewal Office:

The applicant picks up the renewed license from the Renewal Office.

30 Min High Frustration

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 18

D. CHANGE IN DRIVING LICENSE CATEGORY

The legal framework governing all the traffic regulations is old and has not been amended or modified for present day needs. The letters B, C, D, and E categorizes the traffic regulations driving hierarchies.

Driving license B represent motorbikes, C is for small cars, D relates to a Bus, and E represents trucks.

Currently, the applicant has to only take the practical exam if they wish to promote to a higher category. However, according to Article 8, Chapter 1 of the Traffic Regulations, the applicant has to take both the oral and practical exam before being granted a category promotion. For drivers who wish to drive lower category vehicles (for example from a truck to car), Article 9, Chapter 1 of the Traffic Regulation states that the driver only has to take the practical exam and no oral exam is required.

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 19

b. Process Map for Change in Driving License Category

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c. Process Steps for Change in Driving License Category

Step Description Time

Required Citizen’s Perspective

1.

Form Distribution Officer:

The applicant obtains an application form (cost: 10 Afs) from the Form Distribution Branch of the Traffic Directorate. The applicant completes an application form.

He/she must have his/her old license and three photographs. The form is the same as the one used for obtaining a new driving license or renewal. This form has multiple boxes that provide options for applicants to tick mark depending on the nature of the request.

30 Min Low Frustration

2.

Clinic/Doctor:

The applicant reports to Traffic Department Clinic for medical examination.

30 Min Low Frustration

3.

Driving School:

The applicant attends the appropriate driving course (for instance, for Truck or Bus)

12 Day High Frustration

4. Practical Test 1hr High Frustration

5.

Finance Officer:

The applicant must pass a practical driving test, if passed the test; he is given an invoice payable at any bank within the city of Kabul. This process has been simplified recently. It used to be that the applicant would have to visit the Traffic Directorate Manager at his office for signature and then receive the invoice for payment. But now Traffic Directorate Manager is available on-site and if the applicant passes the practical test, he signs the document. Also, there is an officer from finance department to provide the applicant with an invoice to make the payment.

30 Min Low Frustration

6.

Bank:

Make payment

2hr Low Frustration

7.

Driving Category Promotion Officer:

The Driving Category Promotion office receives the completed application and issues the promoted license to the applicant. It is important to note, that the license holder does not receive a new license. Within the license booklet, a page indicate different category of driving, such as motorbike, small vehicle, truck or bus. If the applicant passes the exam, the officer puts a stamp in front of the symbol that represent each of the aforementioned categories.

1 Day High Frustration

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E. NEW VEHICLE REGISTRATION

The legal framework governing all the traffic regulations is old and has not been amended or modified for present day needs. The current Traffic Regulations covers the following steps of the process in general terms. The applicants have to pay custom and associated fees prior to making a request to obtain a license plate and vehicle registration. The technical inspection is covered in detail in the regulation. As per the regulation, the Directorate issues the owner a vehicle registration booklet after identity is verified. However, the current process requires far more details causing delays in the process and increasing the level of frustration.

The translation of the applicable articles in the regulation follows:

Article 5, Chapter 1:

Owners of the vehicle must pay custom tariff and associated government tax and within 10 days, refer to the Traffic Directorate for the purpose of vehicle registration.

Article 7, Chapter 1:

Prior to recording the documents, technical inspection of the vehicle should take place and be conducted by the technical officers as per the specification printed on the technical inspection sheet.

Article 8, Chapter 1:

The vehicle registration booklet is valid for one year. (It must be noted here that the current vehicle registration booklet is valid for three years.)

Article 9, Chapter 11:

Vehicle registration booklet and license plate are issued only when the owner complies with the stipulation of Article 5, Chapter I and Article 7, Chapter I, and whose identity is verified as per the Tazkera or similar documents.

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 22

b. Process Map for New Vehicle Registration

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 23

c. Process Steps for New Vehicle Registration

Step Description Time

Required Citizen’s Perspective

1.

Kabul Traffic Directorate:

The Central Kabul Customs Department sends a record of the vehicle to the Central Kabul Traffic Directorate via an official letter Maktoob.

1 day High Frustration

2.

The Central Kabul Traffic Directorate gives the vehicle owner a written referral to the appropriate Provincial Directorate, depending on where the owner wishes to register it. Once the owner chooses his/hers desired location/province, The Central Kabul Traffic Directorate sends a Maktoob (letter) to the Provincial Traffic Manager.

1 hr High Frustration

3.

Vehicle Inspection Site:

The owner takes the vehicle and its customs clearance documents to a vehicle inspection site.

1hr Low Frustration

4.

All traffic directorates have three traffic officers, who are responsible for conducting vehicle inspections. The traffic officers conduct an inspection and prepare an inspection report, which includes the vehicle’s estimated value, information about the physical check of the vehicle.

10 minutes High Frustration

5.

Traffic Department Manager The buyer and seller (normally a company) of the vehicle report to the Traffic Office to confirm the sale.

1 Day High Frustration

6.

Legally Registered Individual/Business (Outside Traffic Directorate Premises):

For security reasons, the Traffic Department requires all vehicle owners to complete and submit a Security Guarantee/Emergency Contact Form (found on the back of the Inspection Report). Vehicle owners are required to obtain signatures from two witnesses (government officials/company owners/shopkeepers) who have a record with the Afghan government. The owner submits the Security Guarantee/Emergency Contact Form and the Inspection Report to the Traffic Finance Department.

1 day High Frustration

7.

Traffic Finance Department:

Traffic Finance Department uses the Inspection Report and Security Guarantee/Emergency Contact Form to determine the Registration Fee and sends all documents to the Directorate for approval. Documentation is sent to the Controller.

10 Min Low Frustration

8.

Bank:

The vehicle owner makes the payment at any bank within the city of Kabul and obtains a receipt

2hr Low Frustration

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 24

Time

Required Citizen’s Perspective

9.

Controller:

The Controller reviews documents to verify that all fees and taxes have been accounted for, and notes in red if any changes in payments are to be made.

10 Min Low Frustration

10.

Registration Office:

The vehicle owner brings all documents to the Registration Office. The Registration Officer issues a blank vehicle registration booklet to the owner. Information from the paper application and the inspection documents are recorded in the booklet, and the vehicle is assigned a license plate number.

3 days High Frustration

11.

Traffic Department Manager:

The Vehicle Registration Officer and Vehicle Registration Manager review and sign all appropriate documents and the vehicle registration booklet.

30 Min Medium Frustration

12.

Registration Office:

The owner brings the signed documents back to the designated registration office, which depends upon the vehicle’s category (truck, bus, van, etc.). Supplementary information is kept for internal records, and the vehicle registration booklet is sent to German High Tech to be recorded in a computerized database.

3 days High Frustration

13.

German High Tech (Inside Traffic Building):

The vehicle owner makes a payment to the German High Tech for recording the information into the database and retrieves backs the vehicle registration booklet.

30 Min Low Frustration

14.

Logistic Department:

The vehicle owner obtains the license plates from the Logistics Department of the Traffic Directorate.

50 Min High Frustration

15.

Vehicle Registration Office The applicants claims the approved vehicle registration booklet/permit

40 Min Low Frustration

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 25

F. RENEWAL OF VEHICLE REGISTRATION

The legal framework governing all the traffic regulations is old and has not been amended or modified for present day needs. The current traffic regulation does not cover details as to what steps are needed for renewal of vehicle registration.

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 26

b. Process Map for Renewal of Vehicle Registration

RAPID ASSESSMENT OF SERVICE DELIVERY IN KEY PUBLIC SERVICES 27

c. Process Steps for Renewal of Vehicle Registration

Step Description Time

Required Citizen’s Perspective

1.

Applicant:

The vehicle owner takes the vehicle and the old vehicle registration booklet to the Technical Inspection Station.

20 Min Low Frustration

2.

Inspection Site:

The Traffic Inspection Office conducts a technical/mechanical and physical inspection of the vehicle and produces an inspection report.

1hr High Frustration

3.

Legally Registered Individual/Business (Outside Traffic Directorate Premises):

For security reasons, the Traffic Department requires all vehicle owners to complete and submit a Security Guarantee/Emergency Contact Form (found on the back of the Inspection Report). Vehicle owners are required to obtain signatures from two witnesses (government officials/company owners/shopkeepers) who have a record with the Afghan government. The owner submits the Security Guarantee/Emergency Contact Form and the Inspection Report to the Traffic Finance Department. The owner is referred to the Vehicle Registration Renewal Office.

1 day High Frustration

Vehicle Registration Renewal Office:

The Vehicle Registration Renewal Office inspects the documents and determines the fees to be paid. The vehicle owner is referred to the Traffic Department Controller Office.

10 Min Low Frustration

5.

Controller:

The Controller Office verifies that the fees have been calculated correctly, and issues an invoice to the vehicle owner.

10 Min Low Frustration

6.

Bank:

The vehicle owner pays the fees at any bank within the city of Kabul and obtains a receipt.

2hr Medium Frustration

7.

Vehicle Registration Officer & All application documents are brought to the Vehicle Registration Office. The office records the information and provides the owner with a pick up date. The booklet is kept and additional information is sent to archive for further bookkeeping purpose.

3 day High Frustration

8.

Vehicle Registration Head:

While the pick up date is provided the vehicle registration booklet is taken internally to the vehicle registration manager for signature

30 Min Low Frustration

9.

Vehicle Registration Officer:

The owner collects the new Vehicle Registration Document from the Vehicle Registration Office.

40 min Low Frustration

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G. REPLACEMENT OF VEHICLE REGISTRATION

The legal framework governing all the traffic regulations is old and has not been amended or modified for present day needs. As per the current traffic regulations the vehicle owner has to pay a fixed fine and bring proof that the loss of the document has been announced in order to obtain reclaim a replacement vehicle registration booklet. Currently, one of the most important steps, verifying the driver’s information against the books, is often overlooked. The main reason for this is that it takes more than four hours to find the requested information and the responsible officer often avoids this step.

The translation of the applicable articles from the traffic regulations follows:

Article 64, Chapter VI

In case of loss of the vehicle registration booklet or license plate, announcement of lost needs to be advertised in one of the official newspapers and 3 days after the date of the announcement, the vehicle owner is required to visit the Directorate to obtain a replacement vehicle registration booklet.

Article 72, Chapter VI

Vehicle owner must pay 200 Afs fine to obtain a new vehicle registration booklet.

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B. Process Steps for Replacement Vehicle Registration

Step Description Time Required

Citizen’s Perspective

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Time

Required Citizen’s Perspective

1.

Vehicle Registration Manager Office:

The vehicle owner completes an application at the Vehicle Registration Manager Office. He/she should bring a copy of the lost vehicle registration booklet if one is available. If not, he/she may indicate a possible date at which the vehicle registration booklet was renewed.

20 Min Low Frustration

2.

Advertisement Agency (Afghan Elanat):

The vehicle owner provides the Vehicle Registration Office with a newspaper clipping proving that the loss of the vehicle registration booklet was announced in a government run advertising agency (known as Afghan Elanant). The owner is referred to the technical inspection station.

3 Days High Frustration

3.

Inspection Site:

The Traffic Inspection Officer conducts a technical/mechanical and physical inspection of the vehicle and produces an inspection report.

20 Min Low Frustration

4.

Legally Registered Individual/Business (Outside Traffic Directorate Premises):

For security reasons, the Traffic Department requires all vehicle owners to complete and submit a Security Guarantee/Emergency Contact Form (found on the back of the Inspection Report). Vehicle owners are required to obtain signatures from two witnesses (government officials/company owners/shopkeepers) who have a record with the Afghan government. The owner submits the Security Guarantee/Emergency Contact Form and the Inspection Report to the Traffic Finance Department. The owner is referred to the Vehicle Registration Replacement Office.

1 Day Medium Frustration

5.

Vehicle Registration Replacement Officer:

The Vehicle Registration Replacement Office inspects the documents and determines the fees to be paid (350 Afs lost registration fee and 205 Afs vehicle registration booklet replacement fee). The vehicle owner is referred to the Traffic Department Controller Office.

30 Min Low Frustration

6.

Controller:

The Controller Office verifies that the fees have been calculated correctly, and issues an invoice to the vehicle owner.

10 Min Low Frustration

7.

Bank:

The vehicle owner pays the fees at any bank within the city of Kabul and obtains a receipt.

3 hrs Medium Frustration

8.

Vehicle Registration Office/Archive All application documents are sent to the Vehicle Registration Office. The owner is informed of the document pick up date.

3 day High Frustration

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Time

Required Citizen’s Perspective

9.

Vehicle Registration Office The vehicle owner collects the replacement vehicle registration booklet from the Vehicle Registration Office.

40 min Medium Frustration

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II. MINISTRY OF THE INTERIOR – TAZKERA OFFICE

IMPORTANCE OF THE SERVICES

Afghanistan’s primary national identification document (Tazkera) is an essential tool for a variety of activities, such as employment, opening a bank account, obtaining a passport, and running for public office. In many parts of the country the Tazkera process is the main interface between public and government. The effort to create an electronic Tazkera is stalled for a variety of reasons including the politics of identity. Even if e-restarted, it would take at least a decade to enroll the entire population, given the current level of investment, security situation, and geographic difficulties.

The new electronic passports issuance requires a valid Tazkera. This requirement to have a valid Tazkera requires each citizen to attest his or her Tazkera before being able to acquire a new passport. The attestation requirement is to detect fake Tazkera from genuine ones, thereby maintaining the integrity of the passport issuance process.

On daily basis, the Directorate of Population Registration serves, on average 2,500 – 3,500 citizens for Tazkera related services. An overwhelming majority of theses citizens seek attestation of their Tazkera.

The Directorate has three major departments. All Tazkera processes mapped in this report fall under the Population Registration Department. There is an Executive Department that oversees regional offices. Each Regional Office has nine employees involved in Tazkera processing, including one Manager, two Archive Staff, and six Regional Desk Officers. Regional Desk Officers ensure that forms are completed correctly and record identity information, with one dedicated exclusively to issuing forms and collecting payments.

Archive Staff verify each applicant’s genealogy. Four Regional Offices within the Directorate handle applications of citizens born in provinces other than Kabul. Separately, applications from Kabul province are coordinated by the Kabul Governorate (Walayat).

GENERAL OBSERVATIONS

The Tazkera process requires customers to carry their application packages between departments to complete most of the steps.

The Regional office sends files to archive, fills the forms, and provides Tazkera at one place while the applicants wait in lines.

The directorate maintains approximately 16,000 – 18,000 hardcopy books, each with 1,000 pages (one page for each individual).

The Directorate’s Tazkera processing center has experienced a high operations tempo in recent months. A diverse pool of applicant’s visits the office on a daily basis numbering, on average, between 2,500-3,000. As many as 10,700, applications have been processed in a single day (primarily verifications). Delays occur during periods of higher volume or when applicants do not have the required documents on their first visit.

The main office is an old building and has not been renovated to meet the demand of Kabul’s increased population. There are only four counters that receive applications. And applicants entering the premises are often lost as there are no visible signs directing them towards the

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starting point of the process. All applicants have to stand in line to get their applications processed—there is no waiting room or chairs.

All day-to-day functions are conducted manually (primary reason for delays). The applicants are practically doing most of the steps.

Due to the lack of a computerized system for task tracking and management, it was difficult to determine the exact number of customers served each day.

The law does not require local community representatives to verify data, but this step has been adopted for applicants’ convenience. The community representative is not a part of the formal government system. Rather, the community makes an internal decision and then registers that individual with the local.

Different Directorate officials had differing understanding of the processes. A gap existed in supposed task completion times between officials at different levels of seniority.

The age correction process takes place within the same department as other identity services offered at this Directorate; it includes issuing a new, replacement, and attested Tazkera.

Procedure manuals of the processes that were provided by the Directorate have far fewer steps than what was mapped. This discrepancy is likely due to the fact that staff have no clear terms of reference. Additionally, it may be due to unnecessary steps being introduced to record the same information for cross checking. Separately, the processes generally involve more steps than is required within the legal framework.

The steps for change in permanent residency are lengthy and required several iterations to validate its accuracy. If the process is initiated in a province other than Kabul, the initial step involves getting the approval of the Provincial Governor. The applicant has to physically visit different departments to process their request. It was noted that the Regional Division Desk and Archive moved the application around internally since these two units are interlinked.

Simplifying the process to change permanent residency will not affect the existing legal framework. Nevertheless, there is confusion over the legal framework at the Directorate.

While there is a new law that was passed in 2012 particularly to facilitate electronic Tazkera, Directorate personnel are still using laws that date back to Taliban era.

The change of permanent residency process is vulnerable to bribe points due to the hiring of brokers to complete the entire process in return for a sum of money. Brokers do not have legal status and are linked or connected with some of the officials who will expedite the process for money.

There are further complications in the change of permanent residency process. Two entities - City District and Municipality District - are involved in the process. The Municipality District certifies the status of the Wakil Guzar and City District provides forms for change in permanent residency and records the information.

For the attestation of the Tazkera, the Directorate is required to refer the Tazkera to the Archive to verify the identity of the individual and check it against the records. However, to expedite the identity attestation process, this step is sometimes bypassed. As a consequence, fraudulent Tazkera occasionally get verified and this can be considered as a major breakdown in the system.

C. OBTAINING NEW TAZKERA

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The articles of Census and Population Registration Law contain some specific details that must be included in the Tazkera form and requires all individuals to renew their Tazkera after the age of 6 years.

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b. Process Map for Obtaining New Tazkera

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c. Process Steps for Obtaining New Tazkera

Time

Required Citizen’s Perspective

1.

Obtain an Application Form

Applicant completes application form, signs form, and attaches a 2”x2” photo.

Applicant mostly receives form from outside vendors and the vendors write the application form for the applicant in some cases.

5 Min Low Frustration

2.

Completing Application Form

Applicant submits form to Application Office, which issues orders and questionnaires to concerned authorities, according to article 11 of The Law on Registration of Population Record.

30 Min Low Frustration

3.

Submission of the Application

Representative of applicant’s community (Wakil Guzar) and/or two government representatives confirm applicant’s residency and identity by filling the questionnaire.

1 Day High Frustration

4.

District Municipality/Line Manager

If Wakil Guzar has filled the questionnaire, then the applicant has to visit his/her local municipality. The local municipality checks and validates the signature of Walkil Guzar. All Wakil Guzars must be registered with their local municipalities. If two government representatives fill the form, then the government representatives’ line manager must validate their employment status.

30 Min Medium Frustration

5.

Provincial Regional Desk While residency is confirmed, the assigned regional desk verifies that form is completed correctly.3

10 Min Low Frustration

6.

Archive

Regional Office submits application for Archive inspection, which ensures that family information is accurate. If Archive inspection does not find applicant’s family information then the application is sent to the applicant’s province of origin. If archive

30 Min Low Frustration

3 Information paper on which regional office to visit is posted on the walls of the directorate and the application department also assists the applicant to identify his\her regional office.

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Time

Required Citizen’s Perspective in that particular province does not find any information as well on the applicant’s family then the process ends. And applicant is marked as foreigner. If information is found then the applicant is sent back to regional office.

7.

Provincial Regional Desk

Regional desk issues applicant two Tazkera forms (for fee of 10 Afghanis per form).

The regional office fills the form for the applicants.

45 Min Medium Frustration

8.

General Director or Deputy Director

Upon completing additional forms, applicant contacts Responsible Official to arrange meeting with Director of Regional Office to verify applicant’s age (only Director is authorized to verify age), although in the absence of Director his deputy also verifies age.

20 – 30 Min Low Frustration

9.

Provincial Regional Desk

The regional office records all information from the Tazkera Form in two duplicate books, adhering to any Manager’s/Directorate’s Remarks. The regional office issues 1 Tazkera form to applicant and keeps one copy as a record. The Tazkera form serves as Tazkera

30 – 60 Min Medium- High Frustration

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D. OBTAINING REPLACEMENT TAZKERA

The Population Registration law does not contain any specific provision on issuance of replacement Tazkera.

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b. Process Map for Obtaining Replacement Tazkera

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c. Process Steps for Obtaining Replacement Tazkera

Step Description Time Required

Citizen’s Perspective

Age Correction

1.

Application Applicant writes…