I think that is the point.

Without an effective subnational governance plan emenating from the center, each area will set it's own course, which we will then support instead.

At that point, you have, by default, bypassed the central government, and, therefore, undermined it.

You already see it going on now with Intl aid starting to bypass Kabul.

A recent story on Pashtuns agreeing to oppose Taliban in exchange for development aid was quite instructive. They are as equally opposed to Kabul, which steals their money.

One deal at a time might end immediate AQ threats, but it won't make a nation (except by complete accident). Are we out to end immediate AQ threats or to build a nation as a more permanent threat reduction step?