Thomas H. Johnson and M. Chris Mason make a compelling case for reempowering the tribal councils in Afghanistan in the October issue of the Atlantic Monthly.
First they note an important historical detail:
As the Russian ambassador to Afghanistan, Zamir Kabulov, noted in a blunt interview with the BBC in May, the current military engagement is also beginning to look like the Soviets’ decade-long Afghan adventure, which ended ignominiously in 1989. That intervention, like the current one, was based on a strategy of administering and securing Afghanistan from urban centers such as Kabul and the provincial capitals. The Soviets held all the provincial capitals, just as we do, and sought to exert influence from there. The mujahideen stoked insurgency in the rural areas of the Pashtun south and east, just as the Taliban do now.
The U.S. engagement in Afghanistan is foundering because of the endemic failure to engage and protect rural villages, and to immunize them against insurgency. Many analysts have called for more troops inside the country, and for more effort to eliminate Taliban sanctuaries outside it, in neighboring Pakistan. Both developments would be welcome. Yet neither would solve the central problem of our involvement: the paradigm that has formed the backbone of the international effort since 2003—extending the reach of the central government—is in fact precisely the wrong strategy.
Then they provide the context for why securing the cities doesn't seem to work:
Politically and strategically, the most important level of governance in Afghanistan is neither national nor regional nor provincial. Afghan identity is rooted in the woleswali: the districts within each province that are typically home to a single clan or tribe.
And zeroing in on the heart of the insurgency, the authors write:
The rural Pashtun south has its own systems of tribal governance and law, and its people don’t want Western styles of either. But nor are they predisposed to support the Taliban, which espouses an alien and intolerant form of Islam, and goes against the grain of traditional respect for elders and decision by consensus. Re-empowering the village coun cils of elders and restoring their community leadership is the only way to re-create the traditional check against the powerful political network of rural mullahs, who have been radicalized by the Taliban. But the elders won’t commit to opposing the Taliban if they and their families are vulnerable to Taliban torture and murder, and they can hardly be blamed for that.
They then propose a plan:
... the U.S. needs to fundamentally reconfigure its operations, creating small development and security teams posted at new compounds in every district in the south and east of the country. This approach would not necessarily require adding troops, although that would help—200 district-based teams of 100 people each would require 20,000 personnel, one-third of the 60,000 foreign troops currently in the country.
Each new compound would become home to roughly 60 to 70 NATO security personnel, 30 to 40 support staff to manage logistics and supervise local development efforts, and an additional 30 to 40 Afghan National Army soldiers. The troops would provide a steady security presence, strengthen the position of tribal elders, and bolster the district police. ....regular contact at the district and village levels would greatly improve the collection and analysis of intelligence.
Perhaps most important, district-based teams would serve as the primary organization for Afghan rural development.
Local teams with on-site development personnel—“District Development Teams,” if you will—could change all that, and also serve to support nonmilitary development projects. State Department and USAID personnel, along with medics, veterinarians, engineers, agricultural experts, hydrologists, and so on, could live on the local compounds and work in their districts daily, building trust and confidence.
...As long as the compounds are discreetly sited, house Afghan soldiers to provide the most visible security presence, and fly the Afghan flag, they need not exacerbate fears of foreign occupation. Instead, they would reinforce the country’s most important, most neglected political units; strengthen the tribal elders; win local support; and reverse the slow slide into strategic failure.