Peacebuilding: Lessons for Afghanistan? - CMI

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Build on previous plans for rehabilitation and reconstruction in an interim period Reviewing existing or preliminary assessments for rehabilitation and reconstruction, such as the UNDP 1993 plan, current drafts by the ASG working group and the World Bank's Approach Paper, should precede the development of new plans. Existing documents can provide the aid community with approximate figures and priorities while awaiting representative input from the Afghan transitional authority. The CAP has identified relief needs that will remain a priority at least until the present Afghan Interim Authority is scheduled to hand over power. As noted in chapter 2, to elaborate recovery and reconstruction priorities before June 2002, when a more representative authority is scheduled to take over in Kabul, would give disproportionate influence to the views of the international agencies and donors, and could undermine the rationale for a national transitional structure. Assess implementation capacity In general, assessing the implementation capacity of relevant actors is as important as assessing the needs of the beneficiaries. Assessing and strengthening Afghan institutions - in both the public and the private spheres - is clearly an integral part of a broader reconstruction and development process. 30
5. Promoting standards of governance and human rights 5.1. Status The UN has affirmed that it will play a central role in supporting the transition to a new government in Afghanistan (SC Res. 1378, 14 November 2001), and has laid down specific criteria for the composition of the government. When endorsing the Bonn Agreement, the Security Council reiterated its long-standing demand that the new government should be "broad-based, gender sensitive, multi-ethnic and fully representative" (Res.1383 6 December 2001). Standards for governance were only indirectly articulated, in that the Council promised to support "national reconciliation, stability and respect for human rights," as well as co-operation in controlling terrorism. The Bonn Agreement includes these goals; additionally, it specifies that Afghanistan will be governed in accordance with "the principles of Islam, democracy, pluralism and social justice". Collectively, these principles provide a frame of reference for groups both inside the country and in the international aid community that wish to hold the Afghan authorities to certain standards of governance. In declaratory terms, at least, the UN has rejected a minimalist position (see chapter 2) in favour of more ambitious goals for Afghanistan. The question of means consequently has to be addressed. How can the international community promote these principles nationally as well as at the local level In theory, the UN and the aid community have considerable leverage. Massive funding for reconstruction is on the horizon, starting with a Donor Alert of 662 million dollars in early December. The UN has both a military and a diplomatic presence in the capital, and the humanitarian aid agencies have resumed operations. Yet the broad-based government envisaged in Kabul will represent numerous internal divisions, will be likely to have limited control over large parts of the country ruled by various warlords, and may itself be at their mercy. The situation invites formalism, where the national government has the power to endorse but not to implement either principles or rights. Conflicting aims in the international community will accentuate the difficulties. The division between minimalists and modernists has been noted earlier (chapter 2). States pursuing particularist interests in Afghanistan may undermine the position of even the minimal central authority necessary to maintain order, let alone observe principles of governance. A case in point is the assistance given by the US to local warlords in the South-East to enlist their support in the war on foreign terrorists and their Afghan allies. Locally, leverage by foreign supporters on local commanders is limited by the element of mutual dependence. Aid agencies may be both dependent and relatively powerless. That applies above all to humanitarian agencies. They find it difficult to withhold relief supplies and lack sanctions against commanders who appropriate a good share of the supply convoys, as was recently reported from Jalalabad. To note that plundering relief supplies violates both the principles of social justice and 31
Page 1 and 2: Peacebuilding: Lessons for Afghanis
Page 3 and 4: Contents ABBREVIATIONS, ACRONYMS AN
Page 5 and 6: Ideological framework .............
Page 7 and 8: Abbreviations, Acronyms and Afghan
Page 9 and 10: Executive summary 1. Purpose and sc
Page 11 and 12: • reverse the legacy of the 1990s
Page 13 and 14: There is limited experience in Afgh
Page 15 and 16: Democratisation, observance of huma
Page 17 and 18: In sharply divided or failed states
Page 19 and 20: PART I: Lessons from past experienc
Page 21 and 22: 2. Negotiating and sustaining a fra
Page 23 and 24: could well undermine the restoratio
Page 25 and 26: 2.3. Critical issues in peace-build
Page 27 and 28: support, financially and otherwise,
Page 29 and 30: alancing act. Questions that have t
Page 31 and 32: To break the cycle of interlocking
Page 33 and 34: 3. Working with national, regional
Page 35 and 36: Fig 3.1. Politico-administrative or
Page 37 and 38: Most aid organisations accepted the
Page 39 and 40: those established by other agencies
Page 41 and 42: intact, although they are evidently
Page 43 and 44: 4. Assessing needs and setting poli
Page 45 and 46: evaluation found weaknesses in the
Page 47: in the SF/PCP after 1998 also exper
Page 51 and 52: and agree to "speak with one voice
Page 53 and 54: Box 5.1. Aid incentives and disince
Page 55 and 56: With both the Taliban and the commu
Page 57 and 58: 6. From relief to reconstruction 6.
Page 59 and 60: Box 6.1: Rehabilitation and develop
Page 61 and 62: The idea of establishing a trust fu
Page 63 and 64: Collectively the ASG possesses much
Page 65 and 66: 7. Urgent rehabilitation issues 7.1
Page 67 and 68: Drug production is an integral part
Page 69 and 70: technical performance and of socio-
Page 71 and 72: 8. Conclusions Part I Afghanistan
Page 73 and 74: success. UN efforts to negotiate a
Page 75 and 76: 9.2 The problem of comparison: How
Page 77 and 78: peacebuilding missions constitute o
Page 79 and 80: agreement among the Afghan factions
Page 81 and 82: “Nation-building” missions as e
Page 83 and 84: subgoal, be it disarmament, electio
Page 85 and 86: more important, as Doyle and Samban
Page 87 and 88: 11. Maintaining the political frame
Page 89 and 90: Afghanistan is a collective good th
Page 91 and 92: Cambodia today is not a democratic
Page 93 and 94: agenda. Nevertheless, as Ameen Jan
Page 95 and 96: apparatus in Somalia. Intra-regiona
Page 97 and 98: some areas (e.g. reforming the army
Page 99 and 100:
of weapons on the hands of individu
Page 101 and 102:
Some demobilisation programmes requ
Page 103 and 104:
police sector also requires establi
Page 105 and 106:
e financed by voluntary contributio
Page 107 and 108:
The formation of a new Timorese pol
Page 109 and 110:
needs assessments are required. In
Page 111 and 112:
Box 5.1: Bridging the transition
Page 113 and 114:
Box 5.2.: Land reform as peacebuild
Page 115 and 116:
services to the population. Experie
Page 117 and 118:
desperate need for repair of infras
Page 119 and 120:
forged between political and crimin
Page 121 and 122:
Similar distortions were observed i
Page 123 and 124:
on plans, progress and expenditures
Page 125 and 126:
14. Conclusions Part II Internation
Page 127 and 128:
Democratisation, observance of huma
Page 129 and 130:
maintaining international security
Page 131 and 132:
approach recommended by the previou
Page 133 and 134:
Colletta, N. J., M. Kostner and I.
Page 135 and 136:
Maguire, R., E. Balutansky, J. Fome
Page 137 and 138:
UNDP. 2002. Learning from experienc
Page 139 and 140:
Summary This report examines lesson
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Peacebuilding: Lessons for Afghanistan? - CMI

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