The Complexities Of Peacekeeping In Afghanistan: A Challenging Mission

There have been several peacekeeping missions in Afghanistan, including the United Nations Assistance Mission in Afghanistan (UNAMA), which was established in 2002 and extended in 2024. UNAMA is a UN Special Political Mission with around 1,164 staff, including 770 Afghan nationals, 298 international staff, and 68 UN volunteers. The organisation has been present in Afghanistan since 1949, with agencies such as UNICEF operating in the country since 1946. In addition to UNAMA, the UN Security Council unanimously agreed to allow the North Atlantic Treaty Organization (NATO) to expand its Afghanistan peacekeeping mission beyond the capital city of Kabul. NATO's involvement is intended to increase security in Afghanistan and marks the alliance's first mission outside of the Europe-Atlantic area.

The United Nations Assistance Mission in Afghanistan (UNAMA)

UNAMA's headquarters are in Kabul, and it maintains a field presence across Afghanistan, as well as liaison offices in Pakistan and Iran. The mission has around 1,164 staff, including 770 Afghan nationals, 298 international staff, and 68 UN volunteers. UNAMA is headed by the Special Representative of the Secretary-General (SRSG) for Afghanistan, Roza Otunbayeva, who was appointed in September 2022. The SRSG is responsible for all UN activities in the country and directly oversees the Security Section, Strategic Communication Service, Human Rights Section, and Peace and Reconciliation.

Two deputy Special Representatives (DSRSG) oversee the main pillars of the mission: political and developmental issues. These pillars include mission sections that specialize in issues such as political analysis, reporting, outreach, and donor coordination, as well as the coordination of UN agencies, funds, and programmes. The Deputy SRSG (political) has specific responsibility for political affairs, including political outreach, conflict resolution, and regional cooperation. The Deputy SRSG (humanitarian) is expected to manage UN support for development efforts in Afghanistan, including capacity building and coordination of humanitarian assistance from international bodies.

UNAMA has been active in calling for an end to fighting in Afghanistan as the Taliban continues to make advances. The mission has expressed deep concern for Afghan civilians, who are bearing the brunt of the violence, and has urged all parties to do more to protect them. The Security Council has also emphasized the important role that the United Nations will continue to play in promoting peace and stability in Afghanistan.

The International Security Assistance Force (ISAF)

ISAF's initial mandate was to secure the Afghan capital of Kabul and its surrounding area against opposition forces to facilitate the formation of the Afghan Transitional Administration headed by Hamid Karzai. In 2003, NATO took command of the mission at the request of the UN and Afghan government, marking its first deployment outside Europe and North America. Shortly thereafter, the UN Security Council expanded ISAF's mission to provide and maintain security beyond the capital region.

ISAF's role progressively changed from leading operations to enabling the Afghan security forces to conduct independent operations themselves. This meant that ISAF's mission evolved from one focused primarily on combat to an enabling Security Force Assistance (SFA) role, centred on training, advising and assisting its Afghan partners to prepare them to fully assume their security responsibilities by the end of 2014.

ISAF was one of the largest coalitions in history and is NATO’s most challenging mission to date. At its peak, the force was more than 130,000 strong, with troops from 51 NATO and partner nations. ISAF's multinational force also helped to create the space and lay the foundations for improvements in governance and socio-economic development for sustainable stability.

The Taliban's role in peacekeeping

Following their return to power in 2021, the Taliban's harsh interpretation of Islamic law and repressive policies, particularly regarding women's rights, have drawn widespread criticism. Their takeover ended the war with the US-backed Afghan government, but the underlying drivers of conflict in Afghanistan remain unresolved. The Taliban have struggled to transition their ranks into formal state security forces and have faced resistance from various armed groups, including the Islamic State in Khorasan. Additionally, the Taliban's exclusion of women from politics and the public sphere, marginalization of ethnic and political groups, and resistance to Western conditions on human rights and inclusive governance have complicated diplomatic engagement and efforts to deliver foreign aid.

Despite the challenges, there have been calls for a United Nations (UN) peacekeeping operation in Afghanistan, arguing that it could help avert a civil war. Proponents suggest that a UN mission could facilitate evacuations, provide humanitarian relief, and verify that the Taliban uphold their promises. However, the Taliban's historical resistance to foreign forces and the political and operational complexities of assembling and deploying a UN peacekeeping operation present significant hurdles.

The UN has been engaged in Afghanistan through the United Nations Assistance Mission in Afghanistan (UNAMA), a Special Political Mission established in 2002 to assist the country in laying the foundations for sustainable peace and development. UNAMA operates under a mandate that is reviewed annually and has been altered to reflect Afghanistan's evolving needs. While UNAMA plays a crucial role, it is distinct from a traditional peacekeeping operation and has a smaller presence in the country.

To achieve sustainable peace in Afghanistan, it is essential to address key issues such as governance, politics, international engagement, and the Taliban's relationship with various stakeholders. The international community's role is crucial in supporting an inclusive and sustainable peace process that protects human rights and improves access to basic services.

The role of the US in peacekeeping

The United States has been involved in peacekeeping missions in Afghanistan since the early 2000s. In 2001, the US military began a bombing campaign against Taliban forces, marking the start of Operation Enduring Freedom. This was followed by the deployment of ground forces, with the goal of defeating the Taliban and dismantling al-Qaeda.

In 2002, the United Nations established the United Nations Assistance Mission in Afghanistan (UNAMA), a Special Political Mission tasked with assisting the people of Afghanistan in achieving sustainable peace and development. UNAMA has a presence across Afghanistan and is headquartered in Kabul.

While the US-led coalition forces were primarily focused on counter-terrorism efforts, they also contributed to peacekeeping initiatives. The US ran two out of four Provincial Reconstruction Teams (PRTs) deployed in Afghan cities, providing security for international aid groups and supporting reconstruction efforts.

In 2003, the North Atlantic Treaty Organization (NATO) took control of the International Security Assistance Force (ISAF), a peacekeeping mission mandated by the United Nations Security Council. NATO's involvement marked a significant step in the evolution of the alliance, demonstrating its commitment to counterterrorism and peacekeeping outside of Europe.

Over the years, the US strategy in Afghanistan evolved, with President Barack Obama announcing a surge of troops in 2009 to counter the Taliban insurgency and strengthen the Afghan government. However, recognizing the limitations of a purely military approach, the US also explored diplomatic solutions, engaging in peace talks with the Taliban.

Despite these efforts, the security situation in Afghanistan remained fragile, with civilian casualties and attacks on major cities persisting. In 2021, the US and NATO began withdrawing their troops, marking the end of America's longest war.

While the US played a significant role in peacekeeping efforts, the complex dynamics in Afghanistan presented challenges. The Taliban's dominance, the presence of various insurgent groups, and the need for local buy-in highlighted the complexities of establishing sustainable peace in the region.

The role of NATO in peacekeeping

On 11 August 2003, the North Atlantic Treaty Organization (NATO) took command of the International Security Assistance Force (ISAF), a United Nations (UN)-sanctioned peacekeeping force in Afghanistan. This was the first mission outside Europe in NATO's 54-year history.

NATO's involvement in Afghanistan began after the 9/11 terrorist attacks on the United States. The Alliance's primary objective was to ensure that Afghanistan would not become a safe haven for international terrorists again. From August 2003 to December 2014, NATO led the ISAF mission, which aimed to create the conditions for the Afghan government to exercise its authority throughout the country and build the capacity of the Afghan National Security Forces.

The ISAF was one of the largest coalitions in history, with troops from 50 NATO and partner countries. At its peak, the force was more than 130,000 strong. The mission contributed to reconstruction and development in Afghanistan, primarily through multinational Provincial Reconstruction Teams (PRTs). These teams, led by individual ISAF troop-contributing countries, secured areas where reconstruction work could be conducted by national and international actors.

In addition to the ISAF mission, NATO also supported the development of local security organisations and provided capacity-building support within areas such as crisis response, natural disaster management, and civil protection.

In December 2014, the ISAF mission came to a close after the Afghan National Defence and Security Forces assumed full security responsibility for their country. This marked the completion of a three-year transition process, known as "Inteqal" in Dari and Pashtu, where security responsibilities were gradually transferred from ISAF troops to the Afghan army and police forces.

Following the completion of the ISAF mission, NATO launched the Resolute Support Mission (RSM) in January 2015. This non-combat mission focused on training, advising, and assisting Afghan security forces and institutions to fight terrorism and secure their country. The RSM operated in one hub (Kabul/Bagram) and four spokes (Mazar-e Sharif, Herat, Kandahar, and Laghman).

In April 2021, NATO decided to withdraw all Allied troops from Afghanistan, and the RSM was terminated in early September 2021. Under the current circumstances, NATO has suspended all support to Afghanistan, but it continues to work on resettling Afghans who worked with the Alliance and their families.

Looking back on its engagement in Afghanistan, NATO conducted a comprehensive political and military assessment, outlining key conclusions and recommendations for future crisis management operations. The assessment found that NATO demonstrated immense capacity and military capabilities and reaffirmed the Alliance's role in crisis prevention and management.

Frequently asked questions