This article has been written by Ms. Krutika Suryakant Kawade, a 4th year student of Modern Law College, Pune.
ABSTRACT:
Afghanistan, experienced conflict and instability for decades, has been a significant focus of the United Nations (UN) since the 2001 US-led invasion that dismantled the Taliban regime. This transformative period marked a strategic shift in the UN’s engagement, positioning it at the forefront of extensive peacebuilding, humanitarian, and reconstruction efforts in the country. This article critically examines the multifaceted role of the UN in Afghanistan, particularly its endeavours in fostering peace, delivering humanitarian aid, and driving development. Central to this examination are the formidable challenges the UN has faced, including persistent insecurity due to ongoing conflict, entrenched corruption undermining governance and development, capacity limitations within local institutions, and issues surrounding the sustainability of implemented programs. Despite these challenges, the UN has made notable strides in certain areas; however, the article underscores that achieving enduring stability in Afghanistan requires a sustained and coherent long-term commitment from the international community. It highlights the necessity of reinforcing local ownership of peacebuilding and development processes and stresses that the ultimate measure of success lies in realizing tangible improvements in the everyday lives of Afghan citizens. The article posits that the path to lasting peace and stability in Afghanistan is contingent upon a nuanced, responsive approach that adapts to the evolving socio-political landscape and addresses the root causes of the nation’s challenges.
INTRODUCTION:
In the aftermath of the US invasion in 2001, the United Nations was given a central role in leading international efforts to rebuild Afghanistan after decades of conflict. This included UN mandates for political, security and developmental activities aimed at promoting peace, stability and reconstruction. The UN Assistance Mission in Afghanistan (UNAMA) was established at the request of the new Afghan government to lead this work.
Nearly twenty years later, the UN continues to support Afghanistan’s peace process, governance institutions, human rights protections, socioeconomic development, and humanitarian aid delivery. However, the UN’s peacebuilding and reconstruction efforts have confronted enormous difficulties in the insecure and impoverished country.
This article examines the role and impact of the UN mission in Afghanistan since 2001. It analyses the key political, security, socioeconomic and humanitarian challenges hindering the UN’s peacebuilding and reconstruction goals. The article also considers debates around the effectiveness of the UN’s strategy and operations in Afghanistan.
HISTORICAL CONTEXT:
PRE- 2001 INVOLVEMENTS:
Before the turn of the millennium, Afghanistan’s history was marked by conflict and power struggles, significantly influenced by external forces. The Soviet-Afghan War, lasting from 1979 to 1989, was a critical period, with the Soviet Union supporting the communist government in Kabul against the Mujahideen, various factions of Afghan fighters backed by countries like the United States, Pakistan, and Saudi Arabia.
UN’s Role in the Soviet-Afghan War
During this period, the United Nations’ involvement was primarily diplomatic. The UN sought to facilitate a resolution to the conflict, which had severe humanitarian implications, including massive casualties and the creation of millions of Afghan refugees. The most notable UN achievement was its mediation role in the Geneva Accords of 1988.
The Geneva Accords
Brokered with significant UN involvement, these accords were a series of agreements signed in Geneva that laid out a roadmap for ending foreign intervention in Afghanistan. The accords stipulated the withdrawal of Soviet troops and the return of refugees. They marked a success for diplomatic efforts but also left a power vacuum that plunged Afghanistan into further turmoil.
Rise of the Taliban
The civil war that followed the Soviet withdrawal saw the emergence of the Taliban, an Islamist militant group. By the mid-1990s, the Taliban had gained control over much of Afghanistan. This period was marked by harsh enforcement of Islamic law, significant human rights violations, and the isolation of Afghanistan from much of the international community.
POST- 2001 DEVELOPMENTS:
The Fall of the Taliban and UN’s New Focus
The landscape of UN involvement in Afghanistan underwent a dramatic shift following the September 11, 2001, attacks in the United States and the subsequent US-led invasion of Afghanistan. This invasion led to the rapid fall of the Taliban regime.
The Bonn Agreement
In December 2001, the Bonn Agreement, facilitated by the UN, marked a pivotal moment in post-Taliban Afghanistan. This agreement established a process for political transition and laid the foundation for building democratic institutions. It was a roadmap for establishing a new, interim Afghan government, drafting a new constitution, and setting the stage for democratic elections.
Establishment of UNAMA
In 2002, pursuant to the Bonn Agreement, the United Nations Assistance Mission in Afghanistan (UNAMA) was established. This mission was designed to oversee and coordinate international efforts for reconstruction and development, promote human rights, and ensure the implementation of the Agreement. UNAMA played a key role in supporting the Afghan Transitional Administration and subsequent Afghan governments, aiding in everything from the drafting of a new constitution to the organization of elections.
Humanitarian and Developmental Efforts
Post-2001, the UN, through its various agencies, intensified its humanitarian efforts in Afghanistan, addressing issues like poverty, health, education, and women’s rights. Despite significant challenges, including ongoing conflict and political instability, these efforts have contributed to measurable improvements in several areas, including increased school enrolment and better access to healthcare.
In conclusion, the UN’s involvement in Afghanistan has evolved from diplomatic mediation during the Soviet occupation to a comprehensive role in nation-building post-2001. This involvement has been characterized by significant challenges and achievements, shaping the course of Afghanistan’s modern history.
THE UN’s PEACEBUILDING, GOVERNANCE AND HUMAN RIGHTS MANDATE:
The UN was central in sponsoring the 2001 Bonn Agreement that formed the political roadmap for post-Taliban Afghanistan. This agreement laid the foundations for rebuilding key governance institutions and instilling democratic processes.
Successive UN mandates authorized UNAMA’s support for Afghan-led peace processes, human rights protections, justice sector reform, anti-corruption efforts, elections, public administration capacity building, and inclusive governance. This enabled the UN to provide technical expertise and monitoring for the creation of new democratic governance systems.
However, the deteriorating security situation severely hindered the UN’s work to extend the authority of Afghanistan’s nascent democratic state. Ongoing armed conflict between government forces, the Taliban, local warlords and other insurgent groups prevented civic institutions from taking hold beyond major urban centres.
The UN’s efforts to instil respect for human rights and gender equality were also obstructed by insecurity and pushback from conservative powerbrokers. Afghanistan remains one of the worst countries globally for women’s rights and freedoms.
While the UN assisted in the development of better legislation around human rights, significant implementation gaps remain. Rule of law and access to justice are tenuous for much of the population, especially women in rural areas.
THE SECURITY CHALLENGE:
Insecurity has been the greatest impediment to the UN’s peacebuilding and reconstruction agenda in Afghanistan.
From the outset, the lack of sufficient troops for security and policing under the NATO-led International Security Assistance Force hampered stabilization efforts. Without adequate security guarantees, the UN’s programs could not be safely implemented across much of the country.
The Taliban-led insurgency expanded rapidly, conducting high profile terror attacks which further weakened confidence in the capacity of the Afghan government and its international backers. Intense fighting between insurgent groups and US/NATO forces continued.
As the security situation deteriorated, UNAMA personnel and operations were directly targeted. In 2009, five UN staff were killed in an insurgent attack on a Kabul guesthouse. The deterioration of security exacted a heavy toll on UN operations and added huge costs for safety measures.
After 2014, security declined further as most international troops withdrew. The UN increasingly relied on Afghan forces for protection which constrained their activities. The 2020 peace deal between the US and Taliban raised hopes for stability. However, violent attacks continue across Afghanistan, calling into question the capacity of current security arrangements to enable the UN’s work.
SOCIO ECONOMIC DEVELOPMENT AND HUMANITARIAN CHALLENGES:
The UN’s humanitarian, recovery and development activities have provided vital support across areas like healthcare, education, food security, infrastructure, environmental protection and employment generation.
UN agencies like UNICEF and UNHCR have delivered substantial humanitarian aid to millions affected by conflict and natural disasters. The UN helped rebuild damaged infrastructure and facilitated the return of refugees and displaced people. Rural development programs improved agricultural productivity and food security.
However, poverty, unemployment and deprivation remain endemic throughout Afghanistan. The country consistently ranks near the bottom of the Human Development Index. Lifespan, maternal mortality, malnutrition and child health outcomes are among the worst globally.
Ongoing conflict and natural disasters like drought regularly create new humanitarian crises and reconstruction needs. The COVID-19 pandemic has also exacerbated Afghanistan’s economic and health troubles.
These conditions severely limit human capital development in Afghanistan and have stunted the UN’s development agenda. Effective aid utilization has been constrained by corruption, instability, inadequate local capacities, and lack of access to insecure regions.
NARCOTICS AND CORRUPTION CHALLENGES:
Afghanistan produces over 80% of the world’s opium, which has fuelled instability, organized crime and corruption in the country. The illicit drug trade has contributed to the weakened legitimacy of state institutions while empowering warlords and insurgent factions.
Despite extensive programs for alternative livelihoods and counter-narcotics law enforcement with UN support, opium production has steadily grown. The opium economy further distorts development progress, especially in Taliban-controlled areas that fund activities through the drug trade.
Widespread government corruption has also severely hampered the effectiveness of international assistance. Despite UN anti-corruption programming, Afghanistan was ranked 165 out of 180 countries on Transparency International’s 2020 Corruption Perceptions Index.
Corruption and patronage networks enabled by the drug trade have drained resources intended for development. It has weakened citizens’ trust in the government, further detracting from institutional legitimacy. Misappropriation of aid funds by corrupt officials has been a major impediment.
SUSTANABILITY CONCERNS:
The heavy reliance on international funding and expertise for Afghanistan’s stabilization raises serious sustainability concerns about the UN’s nation-building approach.
Critics argue the lack of emphasis on building self-sufficiency has created an aid-dependent state with limited capacity to independently sustain progress made. The Afghan government remains overwhelmingly reliant on international donors, with foreign aid making up around 75% of its budget.
There are worries that the abrupt withdrawal of most foreign troops and aid cuts could lead to a sudden collapse in Afghanistan’s fragile institutions. To ensure the longevity of its investments, the UN has focused increasingly on capacity building and facilitating Afghan ownership. But sustainability issues remain a major long-term challenge.
DEBATES AROUND THE UN’s STRATEGY AND IMPACT:
The UN mission in Afghanistan has attracted some criticism over its role and strategy. Some argue its ambition and mandate outpaced its actual capacity on the ground. The lack of realistic objectives and timelines diminished its credibility.
Analysts debate whether the UN’s peacebuilding model was fundamentally flawed for the context. Attempting to install Western-style centralized democracy in Afghanistan’s decentralized tribal society was inherently difficult. Greater investment in locally led processes may have been more effective.
Other critiques contend the UN mission was too compliant with US strategic goals instead of prioritizing Afghan needs. Some question whether the UN could have opposed flawed US strategies that fuelled the insurgency, like aggressive counterterrorism operations that caused civilian casualties.
There are also critiques about inefficient UN bureaucratic structures and rivalry between UN agencies impeding coordination of activities. Some experts argue the UN’s impact has been most tangible in discrete humanitarian and developmental projects rather than its overly ambitious state-building agenda.
However, defenders argue the UN’s whole-of-system approach in Afghanistan has added value and that there were few viable alternatives. While flawed, the UN’s role in providing technical expertise remains essential for Afghanistan’s future. The core priority is ensuring continued international support to consolidate the UN’s peacebuilding investments so far.
CONCLUSION:
The UN has undertaken enormous efforts to promote peace, stabilize governance, protect human rights and foster socioeconomic development in Afghanistan over the past two decades. However, these initiatives have confronted monumental challenges.
Insecurity, corruption, aid dependency and sustainability issues have obstructed the UN’s peacebuilding agenda. Lasting stability in Afghanistan will depend on sustained international engagement, improved local ownership of the peace process, and real progress in Afghans’ living standards.
The UN continues to have an important role to play in supporting Afghanistan’s future. But it needs to adapt its approach based on a realistic assessment of conditions on the ground and lessons from past challenges. With sufficient targeted support, the UN can still make vital contributions to building sustainable peace in Afghanistan. But this will require a pragmatic long-term strategy aligned with Afghan priorities and capacities.
REFERENCES:
The article was originally published on stimson.org. The link for the same is herein. https://www.stimson.org/2021/a-step-by-step-roadmap-to-peace-in-afghanistan/
The article was originally published on B4PEACE. The link for the same is herein. https://www.b4peace.unipr.it/downloadp.php?idfile=78&checkfile=1
The article was originally published on Digital Commons. The link for the same is herein. https://digitalcommons.nyls.edu/cgi/viewcontent.cgi?article=1549&context=journal_of_human_rights
The article was originally published on Digital Commons. The link for the same is herein. https://www.mpil.de/files/pdf2/mpunyb_afsahguhr_9_373_456.pdf
The article was originally published on Asia Society. The link for the same is herein. https://asiasociety.org/analysis-peacebuilding-approaches-afghanistan