SC/9696
Security Council
6154th Meeting (AM & PM)
Delegates Focus on Crucial Upcoming Elections As Growing Insurgency-Driven Civilian Casualties Raise Concern
Ahead of Afghanistan's defining presidential and provincial elections in August, Kai Eide, Special Representative of the Secretary-General, said today that, if managed well, the situation in that country ?? the most complex it had been for years ?? could become a turning point in efforts to bring end the conflict there.
Briefing the Security Council on the situation in Afghanistan, he said it was characterized by the emergence of three interlinked strategic shifts: increased emphasis on civilian efforts; a focus on subnational governance and service delivery; and the alignment of international efforts such as the aid-effectiveness agenda.
But, careful not to present "a rosy picture" of the situation, he said the ongoing conflict seriously undermined the prospects for progress. The number of security incidents had risen beyond the 1,000 mark for the first time in May, a 43 per cent increase over the same period in 2008. In fact, it had been the most intense fighting season so far experienced.
Efforts to ensure the Afghan people's continued support for the international community's military engagement must be strengthened, he said, emphasizing that the political costs of recent mistakes were simply disproportionate to military gains. However, the clear majority of civilian casualties were caused by the insurgency. They were not the result of tragic mistakes, but of deliberate policy.
In the context of the elections, he said ministers and heads of security institutions had given assurances of their determination to protect the integrity of their institutions. Candidates had been called upon to avoid inflammatory language and to conduct campaigns focused on their vision for Afghanistan's future. "We need a campaign, not only about who will lead the country, but where they will lead the country," he said.
He said that, with rising expectations and new opportunities emerging on the ground, there was a need for more resources to fulfil the donor-coordination mandate of the United Nations Assistance Mission in Afghanistan (UNAMA); to meet new opportunities in capacity- and institution-building; and to expand across the country, as requested in Security Council resolutions. Expectations were high for that multifaceted and ambitious mandate and, while grateful for the additional resources received last year, UNAMA now needed more.
Afghanistan's representative said his country had grown from a country devoid of society, Government and infrastructure to one with thousands of miles of roads, millions of children in school, and accessible health care for some 85 per cent of the population. At the same time, daunting challenges were yet to be adequately addressed, most importantly insecurity, which was increasing rather than ebbing, with civilians continuing disproportionately to bear the costs.
The Taliban had shown an increasing disregard for human life, intentionally targeting civilians, particularly women, children and humanitarian staff, and using populated areas to stage attacks on international forces, he said. As the international forces increased in strength during the summer months, and insecurity worsened in parts of the country ahead of the elections, everyone must be careful to avoid increasing the loss of civilian life. Afghanistan applauded recent steps taken by the North Atlantic Treaty Organization (NATO) and the United States to address those concerns, as well as the recently announced rules of engagement and improved guidelines for the use of air bombardment.
Afghanistan had the opportunity to make significant progress if it maintained its new momentum and focus over the coming months, he said. That would require broad and consistent international engagement. If the Government could ensure transparent and open elections, increase security for the Afghan population, improve coordination and aid effectiveness, strengthen institutions and constructively address the regional dimensions of the situation, "we can clear a space on which to build a strong, sustainable Afghanistan", he said.
The representative of the United States said her country's security policy goals in Afghanistan were clear. Among them were disrupting, defeating and dismantling Al-Qaida and building up the Government's capacity. The elections on 20 August were a critical milestone in the Government's efforts to expand governance. It offered the Government an opportunity to give its citizens a voice in the ongoing drive to strengthen democracy and good governance.
She said her country regretted deeply any injury or loss of life among innocent Afghans stemming from operations involving the United States or the International Security Assistance Force (ISAF). Any loss of innocent life was tragic and the United States would continue to conduct thorough joint investigations of such incidents jointly with the Afghan Government. The United States and international forces took extensive precautions to avoid loss of life among Afghan civilians and Afghan forces in its operations against terrorists.
She added that the United States Government had announced on 14 June that reducing civilian casualties would be a top priority in providing a secure environment in which to strengthen the Afghan Government and society. As it pursued those goals, however, it must be remembered that it was fighting an enemy that employed appalling tactics, including the use of children as human shields. Most casualties were caused by the insurgents and not by the international forces.
The delegate of the Russian Federation said he was seriously concerned about the ongoing loss of civilian life, and called for meticulous investigation of all such incidents and accelerated efforts to prevent them in future. Efforts by the Afghan authorities and the international military presence had yet to bring about "any truly serious improvements in the security sphere". Much remained to be done, including with respect to the international military presence, in light of the growing presence of the Taliban and Al-Qaida, which undermined the basis of the Afghan nation, its stability and reconstruction.
Emphasizing the need to "Afghanize" anti-terrorist operations, he said that, without the active involvement of the Afghans themselves, it would be impossible to eradicate extremism. Nor would it be possible to maintain certain positive trends, such as shifting the focus of reconstruction to the Afghan Government. The Russian Federation also categorically opposed any arrangements with Taliban, terrorist or extremist ringleaders as any attempts to establish dialogue with them would undermine the Council's sanctions regime.
Pakistan's representative said Afghanistan stood "at the crossroads of history". Having suffered decades of war and civil strife, its challenges were numerous and daunting. It was time to end that vicious cycle, but there was no magic wand to turn the devastation of decades into development overnight. The absence of a comprehensive strategy had prevented significant gains in peace consolidation and achievement of stability. "We must move from the hitherto fragmented and piecemeal approach to tackle these formidable challenges and mount an integrated response fully owned and led by the Afghan people with the support of the international community," he urged.
The parameters of a sustainable solution should also include a comprehensive regional approach, he said, adding that, apart from Afghanistan itself, no other country had a more vital stake in peace, security and prosperity in that country than his own. Pakistan had suffered directly from the ongoing instability in Afghanistan. Peace in that country was essential to the tranquillity and development of Pakistan's own border regions, and Pakistan was, therefore, firmly committed to helping the Afghan Government and the international coalition in restoring security and bringing stability to Afghanistan.
Most of the nearly 30 speakers in the debate agreed on the need to define the contours of a comprehensive strategy for Afghanistan. While the country had made progress in certain areas, no one doubted the considerable challenges remaining on most fronts ?? particularly the political, security, governance and development spheres. The dramatic deterioration of the security situation was worrying, as the increase in civilian casualties fuelled public discontent against foreign forces. Speakers pointed to the slow and uneven pace of reconstruction and development efforts, the absence of State authority throughout the country, rampant corruption and economic hardship, which one delegate said was "shattering the people's confidence" in the Government's ability to lead.
Also speaking today were the representatives of Japan, United Kingdom, Uganda, Austria, Mexico, Croatia, Costa Rica, Libya, France, China, Viet Nam, Burkina Faso, Turkey, Canada, Czech Republic (on behalf of the European Union), Netherlands, Norway, New Zealand, India, Italy, Australia, Germany and Iran.
Turkey's representative, whose delegation held the Council presidency in June, added a few farewell remarks, as he would be retiring tomorrow. He said the last four-and-a-half years at the United Nations, and especially the last six months in the Council, had been among the most interesting and rewarding experiences of his 44-year diplomatic career. He thanked all colleagues for their kindness and support, unreserved cooperation and understanding.
The meeting began at 10:10 a.m. and suspended at 1:15 p.m. It resumed at 3:10 p.m. and ended at 4:20 p.m.
Background
Before the Council was the report of the Secretary-General on the situation in Afghanistan and its implications for international peace and security (document S/2009/323). The report was issued pursuant to resolution 1868 (2009) of 23 March, which requested a report on developments in that country every three months.
The report states that the first six months of 2009 have witnessed the beginnings of three interlinked strategic shifts in Afghanistan. The first shift involves an increased emphasis on civilian efforts, which is a manifestation on the ground of what has been agreed in conference halls: that military means alone will not lead to success. The second shift is a new focus on subnational governance and service delivery, predicated on the recognition that insecurity feeds on weak governance and popular disillusionment. The final strategic shift is the alignment of international efforts behind well-conceived Government programmes in key sectors ?? in other words, the essence of the aid-effectiveness agenda.
According to the report, if the positive trends it describes are sustained, there is a possibility for a major improvement in the situation. However, these encouraging developments coincide with a difficult overall political and security situation. The election campaign period has now begun and will absorb political energy and attention. Furthermore, Afghanistan is currently in what may well be its most intense fighting season since 2001. Thus, it will be challenging to maintain the positive momentum gained in several critical sectors. If that momentum is lost, the country will lose valuable time at best, and experience new disappointments and setbacks at worst, leading to further disillusionment among the public and the international community.
In the report, the Secretary-General appeals to all members of the international community to "put their full weight behind the positive developments in order to maintain momentum through the complex period ahead". That means giving urgent and strong support to the effective national programmes being presented in key sectors. The coming period will see an increase in the number of international forces in the country, which are required not only to contribute to security for the elections, but also to accelerate the strengthening of the Afghan National Army.
Additional international forces will mean a more intense fight against the insurgency, the report notes, stressing the critical need for this fight to be conducted in a way that weakens the terrorist threat and boosts popular support. The Secretary-General is profoundly concerned about the risk posed by an increase in civilian casualties and by a type of military conduct that alienates the population from the international community. "More than ever, we need the solid and continued support of the Afghan people for the presence of the international community in Afghanistan, both civilian and military." Also of critical importance is the need for the international civilian and military presence to maintain its broad multinational character.
For the United Nations Assistance Mission in Afghanistan (UNAMA) to fulfil the central role assigned to it by the Council, it must be given adequate resources to address the strategic shifts, the report states. The Mission has eight regional offices and 12 provincial offices, including two new offices opened in May, and budgetary resources for three additional offices scheduled to be opened soon. To have a presence in each province, UNAMA needs additional resources, including for security when necessary, to establish 11 more offices. It has a strengthened role in aid coordination, aimed at catalysing Afghan and international partners so that donor decisions are made on the basis of technically sound and Afghan-owned sectoral strategies. While the Mission has made extraordinary efforts to use the additional resources made available as efficiently and expeditiously as possible, it is clear that increased resources are necessary.
Recalling that resolution 1868 (2009) asks the Mission to develop benchmarks, the focused attention on preparations for elections and on the Conference in The Hague has made that task impossible to complete. The Secretary-General, therefore, proposes to include a finalized set of benchmarks in his next report in September. It is envisaged that the benchmarks would focus on broad areas reflecting the goals of the agreed national strategies and drawing on UNAMA's mandate. These include institution-building, security, economic and social development, as well as cross-cutting issues that heavily influence progress in other areas. It is envisaged that the benchmarks will be results-based and not tied to target dates. Although UNAMA has the capacity to monitor progress in some areas, responsibility to make such progress rests with Afghan and/or international counterparts.
Briefing
KAI EIDE, Special Representative of the Secretary-General for Afghanistan, said the present situation in that country was certainly the most complex experienced for many years, but if managed well, it could become a turning point in efforts to bring the conflict to an end. The situation was complex because so many processes and perspectives had to be kept in mind: the need to ensure a credible election process, the result of which could be accepted by the people; the need to stimulate promising developments in several sectors despite the "noise" of the election campaign and the intense fighting season; and the need to look beyond the elections and shape a more focused agenda for the next five years. That agenda would have to include a credible peace process as an integral part of the overall strategy. In all those processes, Afghanistan's institutions and people would have to take the lead, with the international community providing support.
The August election was about more than choosing Afghanistan's leaders; it was about strengthening peoples' confidence in the democratic process and strengthening Afghan institutions, he said. It was not only about who would lead, but about the legitimacy of that leadership. All candidates had been urged to campaign with dignity and fairness, and all Government institutions and officials had been called upon to maintain impartiality. Ministers and heads of security institutions had given assurances of their determination to protect the integrity of their institutions. Candidates had been called upon to avoid inflammatory language and to conduct campaigns focused on their vision for Afghanistan's future. "We need a campaign, not only about who will lead the country, but where they will lead the country," he said.
He said he had called on the international community to avoid any interference, or appearance of interference, in the election process. Nobody's interests were served by disputed election results. Non-interference, a dignified policy-oriented debate and total international impartiality were all critical to the level playing field that everyone sought to establish. Another element was the ability of candidates to conduct their campaigns. There was a totally new momentum in the areas of strengthening security institutions, reforming agriculture and the private sector, improving revenue collection and internal Government coordination, and in developing comprehensive civilian capacity-building programmes.
However, Mr. Eide said his fear was that the noise from the election campaign and the fighting season would absorb so much energy and attention that it would overshadow those positive trends, affecting the momentum. "If we do not succeed in maintaining this momentum, then I am afraid we will witness new stagnation and more disillusionment among the public." The positive trends were mainly the result of more competent ministries, but also of the international community's strong and long-term commitment. "We must remain firm in that long-term commitment, on which continued progress will depend. However, progress also depends on a short-term ability to respond to new opportunities," he stressed.
Turning to the international community's involvement, he said there were some new and promising trends. In particular, the review of United States development policies was producing important results. The readiness to support the new national agriculture programme and the Government's plans for civilian capacity-building and for revenue collection was welcome, as was a trend to support Afghan plans and priorities more generously than before. That could represent a major shift and lead to greater aid effectiveness and better donor coordination. The shift in United States counter-narcotics policies, combined with the new Afghan programme for the development of alternative livelihoods, could also have a significant impact on efforts to combat poppy production.
However, the inequitable distribution of resources continued, making it easier for the insurgency to destabilize previously stable provinces and districts, he noted. There was still a serious lack of reporting on how and where development resources were spent, which complicated planning and coordination. Hopefully, the ongoing gap assessment in key sectors would lead donors to provide more information about their spending and to a redistribution that would provide greater resources for under-funded provinces. More effective and coordinated development efforts would make it possible to meet the concerns of the Afghan people and their legitimate demands for greater economic and social justice. That would also enhance the people's confidence in their own Government and in the international community.
Efforts to ensure the Afghan people's continued support for the international community's military engagement must also be strengthened, he said, noting that the political costs of recent mistakes were simply disproportionate in military gains. However, the clear majority of civilian casualties were caused by the insurgency. They were not the result of tragic mistakes, but of deliberate policy. "I am not saying all this in order to present a rosy picture of the overall situation in Afghanistan," he said, stressing that the ongoing conflict seriously undermined the prospects for progress. The number of security incidents had risen beyond the 1,000 mark for the first time in May, having increased by 43 per cent over the first four months of 2009 compared to the same period in 2008. There were more incidents in parts of the country which had, up to now, been stable. That was the most intense fighting season so far experienced.
It was also clear that the fight against widespread corruption was still only in its early stages, he continued. Institutions were still weak, not only in human capacity, but in physical infrastructure, especially at the subnational level. Six provinces still lacked offices for their governors. Only half the district governors had an office building, and 288 lacked a vehicle. That impacted tremendously on their ability to administer the country and deliver services. "We must also have a perspective that goes beyond the elections," he said, recalling the clear priorities set in Paris and at The Hague conference.
Emphasizing the importance of a common post-election strategy, he said there was a need for a vision that would provide a clearer direction and guide efforts in support of a new Government; a development strategy that would make it possible to move forward in a more disciplined and coordinated way, and allow for greater Afghan ownership; and a security strategy that would accelerate the build-up of Afghan security forces and their role in ensuring stability. Finally, there was a need for a political strategy that would include a credible and inclusive peace process, respect the rights of all Afghans, and bring the various parts of society together. A credible and successful peace process could only take place with a Government that enjoyed the people's support and had confidence in itself. The same was true of the international presence.
Turning to the United Nations Assistance Mission in Afghanistan (UNAMA), he said expectations were high for its multifaceted and ambitious mandate, adding that, while he was grateful for the additional resources received last year, the situation had evolved, even during the six months since the adoption of the 2009 budget. With rising expectations and new opportunities emerging on the ground, there was a need for more resources to fulfil the donor-coordination mandate; to meet new opportunities in capacity- and institution-building; and to expand across the country, as requested in Security Council resolutions.
While UNAMA did not itself bring financial resources, he said, a country-wide presence of the Mission could serve as a magnet for other civilian organizations and gradually draw development and governance efforts "out of the military context and into the civilian context where they belong". That could help facilitate an all-inclusive political process through an improved civilian outreach programme. He, therefore, appealed to the Council to support the Mission in its urgent need for additional resources.
In the mandate given UNAMA in March, the Council had asked it to develop benchmarks for its activities, he recalled. That work was under way and would be finalized in time for the Secretary-General's next report in September. It was not an easy task, since the Mission's efforts formed an integral part of the efforts of so many others. It was also difficult to establish the timelines and means to measure progress in political processes, especially in a context as unpredictable and complex as Afghanistan's. Nevertheless, consultations with partners were under way, and he was confident that UNAMA would be able to present the Council with a set of meaningful benchmarks by September.
Statements
ZAHIR TANIN (Afghanistan), noting that his country was nearing a "new beginning", recalled that five years ago, Afghanistan had held its first elections after decades of bloody power struggles. Despite continuing terrorist activities by the Taliban and Al-Qaida, the country had made enormous progress since 2001, and its people were ready to go to the polls a second time. "This, in itself, is a huge success, and it reflects the enduring Afghan support for the stabilization process and the value of partnership between Afghanistan and the international community."
The elections were less than three months away and between now and August, Afghanistan and the wider international community must act to ensure the transparency and fairness of the electoral process, he said. There was a lot at stake and the Afghan people knew that the ballot was the only feasible way to build on the positive progress of the past. To do so, the elections must be credible and legitimate. The results should unite the Afghan people, strengthen Afghan institutions and provide momentum for ongoing stabilization efforts.
Turning to specifics about the campaign, he said the rules of the game had been defined by law. The Government and relevant bodies were working to ensure that the candidates received security, transportation and access to the media. For the actual elections, the essential priority was to ensure security so that people from all over the country would be able to vote. To that end, the Afghan Army and national police would provide the main security at some 7,000 polling stations throughout the country, supported by a strengthened international force. In addition, the Independent Electoral Commission, the Electoral Complaints Commission and the Media Commission would be responsible for providing information, logistics and oversight, guaranteeing access to media for candidates and responding to the concerns of the public.
He stressed that, while the elections had deservedly been at the centre of attention for months, the international community must remember that the vote was part of a larger effort to promote change and ensure stability far into the future. The coming months should reinvigorate the partnership between the Afghan Government and the international community. "We should use the elections to add momentum to the strategic shifts that began this year and unify our approach, around [...] the need to strengthen Afghan institutions and make them sustainable, and the need to be increasingly responsive to the growing expectations of the Afghan people, who want to see a tangible improvement in their lives."
With some welcome strategic reviews by the United States and the North Atlantic Treaty Organization (NATO), he said, the past months had provided a timely opportunity to review achievements and rethink strategies in different areas. Afghanistan had grown from a country devoid of society, Government and infrastructure to one with thousands of miles of roads, millions of children in school, and accessible health care for some 85 per cent of the population. At the same time, daunting challenges remained to be adequately addressed, most importantly insecurity, which was increasing rather than ebbing, with civilians continuing disproportionately to bear the costs.
The Taliban had shown an increasing disregard for human life, intentionally targeting civilians, particularly women, children and humanitarian staff, and using populated areas to stage attacks on international forces, he said. As the international force increased in strength during the summer months, and insecurity worsened in parts of the country ahead of the elections, everyone must be careful to avoid increasing the loss of civilian life. Afghanistan applauded recent steps taken by NATO and the United States to address those concerns, as well as the recently announced rules of engagement and improved guidelines for the use of air bombardment.
Efforts to meet development goals remained fragmented, he said, adding that poverty had increased and unemployment was a major problem. Governance and the rule of law remained weak and, alongside corruption, required sustained attention from both the Government and the international community. Humanitarian and development aid should be better coordinated and more accountable. Resources must be funnelled towards building Government capacity because it needed lasting expansion of its presence rather than the temporary expansion of the foreign presence. The "civilian surge" would be the backbone of the national effort to address many of those challenges, bolstering support for national development priorities and programmes in key sectors. It would also help improve service delivery in provincial areas.
While the international community and the United Nations had an essential role to play in the coming months and years, Afghanistan also needed stronger cooperation with its neighbours, he said. "As has been widely recognized, this conflict is not limited to the borders of Afghanistan, but involves the entire region, and endangers people all over the world," he stressed. Afghanistan's enemies were not local, but regional. They found sanctuary and support outside the country and a comprehensive regional approach would be needed to combat them. The Government had recently begun moving towards a more positive regional interaction with Pakistan and Turkey.
Afghanistan had the opportunity to make significant progress if it maintained its new momentum and focus over the c