In 2001, when the United States and its allies removed the Taliban regime, Afghanistan was in economic crisis. The nation’s roads had deteriorated, limiting economic growth and access to resources and services for its citizens. The Afghan government has recognized that improving the country’s roads is an important element in lifting the population from poverty. It considers a viable major road network essential to becoming a transport and trading hub in Central Asia. Additionally, road access for rural areas would help to promote licit crops and broaden access to health and education. In 2003, the Afghan government and international donors proposed a road network for Afghanistan, which they hoped to complete by 2015. The proposed network (as shown in fig. 1) identifies the country’s major roads, including the ring road, which links Afghanistan’s major cities of Kabul, Kandahar, Herat, and Mazar-e Sharif. In February 2006, the Afghan government introduced the interim Afghanistan National Development Strategy and its accompanying implementation plan, the Afghanistan Compact. The compact included two benchmarks for roads: (1) a fully upgraded ring road as well as roads connecting the ring road to neighboring countries by the end of 2008, and (2) a fiscally sustainable system for road maintenance by the end of 2007. The Afghan government and international donors established the Joint Coordination and Monitoring Board to oversee the implementation of compact benchmarks. In addition, representatives of relevant government ministries, agencies, and the international community have formed groups to address implementation issues. For example, the group working on roads is commonly referred to as the Consultative Group for the Transport Sector. Several Afghan ministries have transportation sector-related functions. The two ministries with road construction and maintenance responsibilities are the Ministry of Public Works, which has jurisdiction over highways and provincial roads, and the Ministry of Rural Rehabilitation and Development, which oversees the rural roads. The Ministries of Transportation and Civil Aviation, Finance, Commerce, Interior, and Foreign Affairs collect fees or tolls associated with the transportation sector. Additionally, the Ministry of Finance disburses funds to other ministries for road maintenance and operations. The Ministry of Economy is responsible for all government procurement, including for road maintenance. Since 2005, the Ministry of Public Works has attempted to standardize the nomenclature of roads in its Interim Road and Highway Standards, and estimated the length of roads in the Road Sector Master Plan. The four broad categories of Afghan roads are regional highways, national highways, provincial roads, and rural roads (see fig. 2). The United States, through USAID and Defense, has committed about $1.7 billion for road reconstruction in Afghanistan between fiscal years 2002 and 2007. USAID, whose commitments represent 67 percent of the total U.S. assistance, has funded highways and provincial roads through its infrastructure program. In addition, USAID has funded rural roads through its Agriculture, Alternative Development, and Quick Impact Project programs, as well as the World Bank-led National Emergency Rural Access Project. Defense, whose funding accounts for the remaining 33 percent of the total U.S. assistance, has committed CERP funds for civilian road projects, and Military Construction and Military Engineering funds for roads for military purposes (see fig. 3). Lrge-le infrastrctre development such as regionnd ntionl highw nd provincil roSll-le project ndertken dring erly phas of recontrction to win locsupport National Emerency Rural Access Project: A mlitilterl effort led y the World Bnk to Alternative Development and Ariculture: Incldel rod recontrction to provide ltern- tive to poppy prodction nd increasgricltprodctivity, rl employment, nd food ecrity 0 Fund committed (doll in million) Commander’ Emerency Repone Proram: Sll-le, rgent, hnitrin relief nd recontrction project to immeditely asst the Military Contruction: Contrction of pved ro for militry prpoContrction for rgent militry prpo such as combat tril for opertion0 Fund committed (doll in million) Since 2002, USAID and Defense have implemented road projects using contracts and grant awards. For its major infrastructure projects, USAID awarded contracts to the Louis Berger Group (LBG) in 2002 and to LBG- Black & Veatch Joint Venture (LBG/B&V) in 2006, and a grant to the United Nations Office for Project Services (UNOPS) in 2004. Defense has awarded contracts for CERP-funded road projects to USACE or directly to local contractors through the U.S.-led Provincial Reconstruction Teams between 2004 and 2007. Table 1 lists U.S. government awards for road reconstruction in Afghanistan. The United States and other international donors have committed over $2.2 billion for reconstruction of the regional and national highways identified in the Afghan government’s Road Sector Master Plan. Of the total donor commitment for these roads, the United States (through USAID) has committed about 42 percent (over $960 million), followed by the Asian Development Bank (24 percent), Japan, and the World Bank (6 percent each) (see fig. 4). The government of Afghanistan has also committed approximately $47 million for the construction of highways. The United States and other donors have completed construction of about 2,700 kilometers of regional and national highways in Afghanistan since 2002, but limited information is available on the status of provincial and rural roads and various challenges have delayed road construction. The Afghan government and international donors established the goal to complete Afghanistan’s regional highway network by the end of 2008, and as of February 2008, about 60 percent of the network was complete. The United States, through USAID, has completed its commitment of 715 kilometers, but the entire network is not expected to be completed by the end of 2008, as planned. The United States has also completed construction of 726 kilometers of national highways and construction of an additional 917 kilometers of these highways, for which the United States and other donors have committed funds, is ongoing or not yet started. Limited information is available on the status of provincial and rural roads, as donors have not reported these data to the joint Afghan government and international donor group that collects data on all Afghan road projects. Although Defense reported completing construction of 155 out of about 1,600 kilometers of CERP-funded civilian roads, project data are incomplete, and according to officials, they cannot identify the location of some CERP-funded roads. Moreover, Defense has not reported project data on CERP-funded roads for inclusion in a USAID database, as required by guidance. Donors have made progress, but road construction is behind schedule and, in some cases, has cost more than expected. For example, USAID has not met its annual completion targets for roads for 2006 and 2007. Challenges including poor security conditions, limited capacity of project implementers, and implementation without adequate planning have contributed to project delays and cost increases. The United States and other donors have completed portions of the regional and national highways (see fig. 5). While the donors have also committed funds for the construction of provincial and rural roads, the overall status of these roads is uncertain because of the lack of available data. Although more than half of the regional highway network in Afghanistan has been completed, construction is behind schedule. In its Afghanistan National Development Strategy, the Afghan government, in conjunction with international donors, established the goal of completing a fully upgraded regional highway network by the end of 2008. The construction of the regional highways is a top road reconstruction priority of the Afghan government and international donors, as these roads are expected to foster regional trade and contribute to Afghanistan’s economic development. The United States and other donors have committed more than $1.5 billion for the over-3,200-kilometers-long regional highway network and had completed about 60 percent (1,954 kilometers) of these highways as of February 2008 (see figs. 6 and 7). The United States, through USAID, has completed the construction of the 715 kilometers of the regional highways it funded. In addition, it also managed the construction for the 115-kilometer-long Saudi-funded section, which is complete. However, construction of an additional 29 percent (932 kilometers) of the regional highway network is ongoing and donors have committed funding but have yet to start construction of the remaining 11 percent (354 kilometers). Completion of at least 300 kilometers of the regional highway network is not expected until December 2009, in part because funding was not committed until September 2006. International donors have completed 44 percent (726 kilometers) of the 1,600 kilometers of national highways for which they have committed approximately $716 million. The national highways are expected to connect the capitals of all 34 Afghan provinces to regional highways. USAID has completed construction of 726 kilometers of national highways and has committed funds for an additional 300 kilometers, which is under construction. Other donors, consisting of the Asian Development Bank, the World Bank, and Italy, have committed funds to construct about 600 kilometers of national highways, but none of these roads is complete (see app. II for the status of regional and national highway projects). The status of provincial and rural road construction is uncertain because donors have not reported this information to the group collecting road project data for all Afghan roads. Additionally, Defense has not reported project details on its CERP-funded roads for inclusion in a USAID database, as required by CERP guidance. Limited Information on the Status of Provincial and Rural Roads Afghanistan’s Road Sector Master Plan identifies about 9,700 kilometers of provincial roads and an estimated 17,000 kilometers of rural roads, and the United States and international donors have funded and built some of these roads. However, limited information is available on donors’ funding commitments and completion status for these roads.