Peacebuilding: Lessons for Afghanistan? - CMI

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NOVIB OCHA OI PCP P.E.A.C.E PRA PROMIS PRSG Purdah QIP RCB RCO SCA SCF-US SF Shura SMU SRSG SWABAC UN UNCO UNCHS UNDAC UNDCP UNDP UNHCR UNICEF UNOCA UNOCHA UNOPS UNMAS UNSMA UXO VAM WB WFP WHO Netherlands Organisation for International Development Cooperation Office for the Coordination of Humanitarian Affairs (UN) Ockenden International Principled Common Programming Poverty Eradication and Community Empowerment (UNDP) Participatory Rural Appraisal Programme Management Information System Personal Representative of the Secretary General (UN) Gender segregation Quick Impact Project Regional Coordinating Body Regional Coordination Officer Swedish Committee for Afghanistan Save the Children, US Strategic Framework Council Strategic Monitoring Unit Special Representative of the Secretary General (UN) South West Afghanistan and Balouchistan Association for Coordination United Nations United Nations Coordinator’s Office United Nations Centre for Human Settlement (Habitat) United Nations Development Assistance Framework United Nations International Drug Control Programme United Nations Development Programme United Nations High Commissioner for Refugees United Nations Children’s Fund United Nations Office for the Coordination of Humanitarian and Economic Assistance Programmes in Afghanistan United Nations Organisation for the Coordination of Humanitarian Assistance to Afghanistan (replaced UNOCA) United Nations Office for Project Services United Nations Mine Action Centre United Nations Special Mission to Afghanistan Unexploded Ordnance Vulnerability Analysis and Mapping The World Bank World Food Programme (UN) World Health Organisation of the United Nations vi
Executive summary 1. Purpose and scope of Part I Part I of this report reviews the experiences of the international community in Afghanistan that are most relevant to future peace-building tasks. It focuses on the 1990s but refers to broader historical and social factors where instructive. The analysis starts with the most fundamental questions facing the Afghans and the concerned international community at present, namely how to • sustain a political framework for peace-building • support structures in Afghanistan that strike an appropriate balance between national, regional and local authorities • develop strategies for assessing needs and identifying policy priorities. The subsequent section looks at experiences in particular sectors that are central to peace-building: • standards of governance and human rights • organising the transition from relief to reconstruction and longer-term development • some key issues in the transition phase (drug control, mine action, return of refugees/internally displaced persons ). Some security issues are examined in chapter 2, but peacekeeping will mostly be discussed in an accompanying report (Part II) that examines lessons from UN operations elsewhere. What is peace-building A poorly defined term, it is used to denote at least two kinds of activity: • strategies to develop trust and build confidence among communities, particularly at the local level • a package of activities undertaken in so-called post-conflict situations, typically coordinated by the UN or through other common mechanisms. In this sense, the concept evolved during the 1990s and presently entails a broad range of activities designed to establish public order, undertake economic recovery and reconstruction, and develop institutions in the judicial, administrative and political sectors (state and civil society). "Peace-building" in the first sense has been undertaken at the local level in Afghanistan by non-governmental organisations and a few UN agencies. Plans for "peace-building" in the second sense have not been prepared by the UN and the international aid community until now, after the fall of the Taliban and the establishment of a transitional government in Kabul. Yet the international community was previously involved on many levels and in various aid capacities. The 1990s consequently offer a set of rich experiences that are relevant to the current phase, ranging from micro-level projects to attempts by the UN to coordinate aid policy in a difficult political context. vii
Page 1 and 2: Peacebuilding: Lessons for Afghanis
Page 3 and 4: Contents ABBREVIATIONS, ACRONYMS AN
Page 5 and 6: Ideological framework .............
Page 7: Abbreviations, Acronyms and Afghan
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 and 48: in the SF/PCP after 1998 also exper
Page 49 and 50: 5. Promoting standards of governanc
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
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police sector also requires establi
Page 105 and 106:
e financed by voluntary contributio
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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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