Un Peacekeeping In Afghanistan: A Complex Mission Of Support And Stability

The United Nations Assistance Mission in Afghanistan (UNAMA) is a UN Special Political Mission tasked with assisting the people of Afghanistan in laying the foundations for sustainable peace and development. The mission was established in March 2002 by the United Nations Security Council Resolution 1401 and has since been reviewed annually, with alterations made to reflect the country's evolving needs. The mandate, which was extended for one year in March 2024, emphasizes the importance of a comprehensive and inclusive Afghan-led and Afghan-owned political process for achieving sustainable peace. UNAMA coordinates the efforts of various United Nations agencies operating in Afghanistan, such as the World Health Organization, which has staff in all 34 provinces.

In the past, other organizations have also been involved in peacekeeping missions in Afghanistan. For instance, in October 2003, the United Nations Security Council unanimously agreed to expand the North Atlantic Treaty Organization's (NATO) Afghanistan peacekeeping mission beyond Kabul. This marked a significant step in the evolution of the transatlantic alliance, aiming to enhance security in the country.

The United Nations Assistance Mission in Afghanistan (UNAMA)

UNAMA is headquartered in Kabul and maintains a field presence across Afghanistan, with liaison offices in Pakistan and Iran. The mission has around 1,164 staff, including 770 Afghan nationals and 298 international staff (as of June 2021). It has offices in 11 Afghan cities: Bamyan, Faizabad, Gardez, Herat, Mazar-e-Sharif, Kabul, Kandahar, Kunduz, Maimana, Pul-i-Khumri, and Jalalabad. In September 2021, UNAMA opened a temporary remote office in Almaty, Kazakhstan, to continue international humanitarian cooperation following the Taliban takeover.

UNAMA is an integrated mission, meaning that the Special Political Mission, all UN agencies, funds, and programmes work together in a multidimensional and integrated manner to better assist Afghanistan according to nationally defined priorities. The Special Representative of the Secretary-General (SRSG) for Afghanistan 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 – with sections specializing in areas such as political analysis, reporting, outreach, and donor coordination.

UNAMA has been active in promoting peace and stability in Afghanistan, calling for an end to fighting as the Taliban advanced in 2021. The mission has expressed deep concern for civilian casualties and urged all parties to do more to protect civilians. It has also condemned attacks on UN compounds and personnel, emphasizing the importance of their safety and security.

The role of NATO in peacekeeping in Afghanistan

NATO's involvement in Afghanistan began in 2001 after the 9/11 terrorist attacks on the United States. The International Security Assistance Force (ISAF), established under a United Nations (UN) mandate and at the request of the Afghan authorities, was led by NATO from August 2003 to December 2014. With approximately 5,500 troops based in and around Kabul, ISAF's primary objective was to create conditions for the Afghan government to exercise its authority and build the capacity of the Afghan National Security Forces in the fight against international terrorism.

The deployment marked NATO's first ground and peace mission outside of Europe since its formation during the Cold War. NATO took command from the Germans and the Dutch, ending the challenging task of finding a new "lead nation" every six months. The alliance aimed to provide more continuity and stability to the mission, with its deputy secretary general, Alessandro Minuto Rizzo, assuring that ISAF's "mission and mandate" would remain unchanged.

The security situation in Afghanistan posed significant challenges, with the country largely controlled by regional militias and warlords. The Taliban posed the most significant threat, with increasing attacks and a guerrilla insurgency along the southern and eastern borders with Pakistan. Despite these challenges, NATO's efforts contributed to notable improvements in Afghanistan. Maternal mortality decreased, life expectancy increased, and socio-economic development progressed, with Afghanistan making the largest percentage gain of any country in basic health and development indicators during ISAF's mission.

In 2015, following the completion of ISAF's mission, NATO launched the Resolute Support Mission (RSM) to train, advise, and assist Afghan security forces and institutions in countering terrorism and securing their country. This non-combat mission focused on supporting functions such as operational planning, budgetary development, personnel management, and ensuring adherence to the rule of law and good governance. RSM comprised around 10,0000 personnel from 36 NATO allies and partner countries, operating in Kabul/Bagram and four other locations across Afghanistan.

However, in 2021, the collapse of the Afghan government and security forces led to the withdrawal of RSM forces and the termination of the mission. Despite NATO's extensive involvement in Afghanistan over nearly two decades, the rapid collapse of the Afghan government and the resurgence of the Taliban raised questions about the effectiveness of the alliance's engagement.

The Taliban's promises and the need for international aid

The Taliban's takeover of Afghanistan in August 2021 has had dire consequences for the Afghan people, particularly women and girls. Despite initial promises to uphold women's rights, press freedom, and amnesty for government officials, the Taliban have since imposed restrictions on civil society and aid organizations. They have barred Afghan women from working for NGOs and sought to push foreign organizations out of the education sector. The Taliban have also exerted greater control over national and international NGOs, establishing fraudulent organizations to benefit from international aid.

The United Nations and other international organizations have been providing humanitarian assistance to Afghanistan, but the Taliban's actions have disrupted and hindered these efforts. The Taliban's restrictions on female aid workers have forced some organizations to pause vital programming, severing assistance to millions of women and girls. Additionally, the Taliban's policies have reduced the overall quality of education, with a decrease in the number and quality of teachers.

To address the humanitarian crisis in Afghanistan, the international community must take a firm and united stand. The Taliban's broken promises and failure to protect human rights have led to widespread impunity for crimes such as torture, revenge killings, and forced evictions. The international community must hold the Taliban accountable for these crimes and violations of international law.

Furthermore, the Taliban's leadership has struggled to consolidate control over its ranks, and an anti-Taliban civil war is brewing. Multinational observers and mediators from countries like China and Muslim-majority nations can assist in de-escalating tensions and consolidating less radical control. A large, multinational observer mission under the UN's Department of Peace Operations could help verify that the Taliban is keeping its promises and pave the way for normalizing relations.

While the Taliban has expressed a willingness to allow some level of female participation in society, their actions have contradicted these statements. The international community must continue to advocate for the rights of women and girls, who have been stripped of their access to education, employment, and freedom of movement. The Taliban's restrictions have severe consequences for all Afghans and threaten the humanitarian assistance programs responding to the needs of millions.

The situation in Afghanistan underscores the need for a robust and sustained international response. The UN's presence and assistance in Afghanistan are crucial, and the organization must continue to support displaced families, provide emergency shelter and protection, and promote sustainable peace and development.

The role of China and Pakistan in peace operations

China's primary interest in Afghanistan is stability. Chaos in Afghanistan, from Beijing's perspective, fuels Islamic fundamentalism, which threatens domestic security in China, particularly in Xinjiang. China has never intervened militarily in the Afghan conflict and has traditionally avoided serious entanglement in Afghan affairs. However, since late 2014, China has stepped up its presence in Afghanistan and has played a role in facilitating the Afghan peace process.

China's role in Afghanistan is driven by both international and domestic elements. Internationally, China is motivated by the desire to secure its economic interests and expand its political influence in the region. Domestically, China seeks to address security concerns related to religious militancy in Xinjiang, the potential for Afghanistan to become a base for the Islamic State, and the flow of Afghan narcotics into China.

China has several advantages that make it a valuable mediator in the Afghan conflict. Firstly, China has never intervened militarily and carries no negative baggage from the past. Secondly, Beijing has a relatively positive political image in Afghanistan, consistently promoting Afghan-led and Afghan-owned policies and respecting the country's independence and sovereignty. Thirdly, China enjoys a strong partnership with Pakistan, which is crucial for bringing the Taliban to the negotiating table. Finally, China can offer economic development incentives to the parties involved in the conflict, luring them away from armed conflict.

China has engaged in shuttle diplomacy between Afghanistan and Pakistan to ease tensions and establish a crisis management mechanism. It has also participated in multilateral efforts, such as the Quadrilateral Coordination Group (QCG) and the Shanghai Cooperation Organization (SCO), to promote peace and stability in the region.

However, China's efforts have been met with challenges. The core issue of allegations of supporting terrorism between Afghanistan and Pakistan needs to be addressed to build trust between the two countries. Additionally, China's selective approach to dealing with terrorism and its preoccupation with its own security interests have undermined its credibility as a peacemaker.

Pakistan's role in facilitating peace talks is critical due to its influence within the Taliban. However, Pakistan has been reluctant to exert its influence to push the Taliban towards peace negotiations. Pakistan views the Taliban as a strategic asset to counter India's perceived influence in Afghanistan.

In conclusion, while China and Pakistan have important roles to play in peace operations in Afghanistan, their effectiveness is hindered by conflicting interests and a lack of commitment to a neutral and inclusive peace process.

The success rate of UN peace operations

Effectiveness of UN Peace Operations

UN peace operations have been shown to be effective in a majority of cases. Professor Lise Howard of Georgetown University, an expert in the field, states that "most of the time, peacekeeping works." This effectiveness is evident in the reduction of civilian casualties, shorter conflicts, and the longevity of peace agreements. The presence of peacekeepers makes it less likely for belligerents to attack civilians and more likely for them to put down their weapons.

UN Peace Operations in Afghanistan

The idea of deploying a UN peacekeeping mission to Afghanistan has been proposed by several analysts and experts. They argue that such a mission could facilitate evacuations, provide humanitarian relief, and verify the Taliban's compliance with their promises, including upholding the rights of women and minorities. However, there are significant challenges and risks associated with this proposition.

Political and Operational Prerequisites

For a UN peacekeeping operation to be assembled and deployed, there are essential political and operational prerequisites that need to be met. Consultations among relevant actors in the UN system, member states, and regional organizations are necessary. If these consultations show promise, the UN Secretary-General would request a strategic assessment to clarify the options for engagement. A technical field assessment would then be deployed to assess the security situation and determine the options, modalities, and financial dimensions of the potential operation.

Political and Security Challenges

The Taliban's dominance in Afghanistan after the withdrawal of US and allied troops presents a significant challenge. Without their consent and active cooperation, a UN peacekeeping operation would be extremely difficult to establish. Additionally, Afghanistan's political context, characterized by a lack of a peace deal, a clear peace process, or a ceasefire, makes it less suited for UN peacekeepers to operate effectively. The de facto Taliban-led government's lack of international recognition further complicates the situation.

Security Risks and Casualties

The presence of armed groups in Afghanistan, such as al-Qaida and the Islamic State-Khorasan, poses a significant risk to lightly armed UN observers, who would be highly vulnerable to attacks. Even large and robust UN peacekeeping missions have had their personnel taken hostage in the past. Experts warn that peacekeepers operating in small formations would be confined to cities and bases, hindering their ability to conduct patrols and monitor the situation effectively.

International Politics and Troop Contribution

The political dynamics, both locally and internationally, are not currently conducive to a UN peacekeeping deployment in Afghanistan. Additionally, no troop-contributing countries have stepped forward to offer their support. The Taliban have not invited a peacekeeping mission, and even if they did, there would be the added complication of preparing for the threat posed by al-Qaida and Islamic State-Khorasan fighters.

While UN peace operations have been successful in many cases, the complexities of the situation in Afghanistan present significant challenges and risks. Any potential UN peacekeeping mission to Afghanistan would require careful consideration of these factors and the cooperation of multiple actors, including the Taliban, to have a chance at success.

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