The
New Tragedy In Afghanistan
By Conor Foley
and Mark Lattimer
The Guardian
10 December, 2003
The
optimism of those involved in the reconstruction of Afghanistan took
a downward turn at about the same time aid workers started getting killed.
Bettina Goislard, a 29-year-old French national working for the UN refugee
agency, was murdered on November 16 as she drove through Ghazni. Two
gunmen on a motorbike drove up beside her vehicle and shot her six times.
Two months earlier, five Afghan staff of a Danish aid organisation had
been taken from their car and gunned down on the roadside.
At least 11 aid workers have been murdered in the past three months
as part of a new strategy by opponents of President Karzai's government.
The killings are a demonstration that much of the country is still ungovernable
and they increase the suffering of the civilian population by disrupting
the delivery of assistance.
They also show how
misguided US policy on Afghanistan has become. The concentration on
the "war on terror" and the attempt to defeat terrorist violence
by military means have been a major cause of the current crisis and,
paradoxically, helped create the conditions for the Taliban to rebuild
support.
The Loya Jirga,
or grand tribal assembly, due to be held today but postponed until the
weekend, has been called to approve a constitution intended to steer
the country to a stable, democratic future. It couldn't have come at
a worse time. Last Wednesday two US soldiers were injured in a grenade
attack in Kandahar. On Friday a UN worker was killed in an ambush on
the road to Herat. On Saturday 20 people were badly injured by a bomb
that devastated Kandahar, and a US air strike in Ghazni aimed at a former
Taliban commander killed nine children.
What has gone so
badly wrong? The Afghan transitional government, put in place after
the Bonn peace accords in December 2001, was dominated by the US-backed
Northern Alliance and, with the exception of Karzai, accords no positions
of power to ethnic Pashtun, who provided the powerbase of the Taliban.
After the fall of the Taliban, some 60,000 Pashtun fled the north in
the face of revenge attacks by Uzbek and Tajik militias. The US continued
to provide support to local warlords in its fight against the remnants
of the Taliban in 2002, despite the fact that the new Afghan Independent
Human Rights Commission was building up a massive caseload of complaints
against the militias. It is hardly surprising that few Pashtun, or civilians
from any group, feel they have a stake in the government.
Last Thursday, US
defence secretary Donald Rumsfeld visited Afghanistan to meet two prominent
warlords, Rashid Dostum and Atta Mohammed, who have spent much of the
past year fighting each other. He also had a photo call with the beleaguered
Karzai, to whom he offered words of encouragement: "Those who have
been defeated... would like to come back... but they will not have that
opportunity." But in the absence of better security, legitimacy
conferred by the US is a liability.
Even before the
Taliban re-emerged, the authority of the transitional government did
not extend much beyond the capital. In October the UN security council
extended the mandate of the International Security Assistance Force,
but it is yet to be deployed beyond Kabul. The country remains essentially
lawless. Many government departments are headed by former commanders
and once again Afghanistan is providing three-quarters of the world's
opium crop.
The tragedy of Afghanistan's
faltering reconstruction is that the Bonn accords, conducted under the
auspices of the UN and supported by Afghanistan's neighbours as well
as the major internal factions, gave the country a genuine political
agreement on which to build. The draft constitution due to be debated
this weekend is in many ways an inspiring document, pledging the country
to a multi-ethnic future, entrenching the universal declaration of human
rights, and providing protection for minority rights.
But its implementation
remains a distant hope. Elections following approval of the constitution
are due in June, but these are likely to be postponed, further damaging
Karzai's credibility. The UN secretary-general has noted that the security
required to enable eligible Afghans to participate fully in elections
"does not really exist".
To provide that
security and ensure that the billions of dollars pledged to Afghanistan
are received will require a major international effort. The US, responsible
for two out of three foreign troops in the country, cannot evade its
responsibility, but it needs to discharge it according to the values
it preaches. One of the big lessons from Afghanistan is that good governance,
respect for human rights and the rule of law are not optional when it
comes to rebuilding a country, but an intrinsic part of reconstruction.
· Conor Foley
is programme manager for the Norwegian Refugee Council's information
and legal aid centres in Afghanistan. Mark Lattimer is director of Minority
Rights Group International