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Foreign Minister Jonas Gahr Støre

The situation in Afghanistan and Norway’s contribution

Address to the Storting 24 October 2006

Mr President,

The Government wishes to maintain Norway’s troop contribution to NATO-led ISAF in Afghanistan at its current high level and does not wish to increase it by sending special forces to the southern part of the country. We will, however, follow the situation closely.

When this clarification was made last week, it sparked fierce debate, and the opposition clearly expressed the view that the matter should be discussed in the Storting. The Government has taken due note of this and – I might add – we have learned from it.

I note that the Government and the opposition have a different understanding of the nature of the issue of consultations with the Storting. I would like to say that I feel quite comfortable about taking the opposition’s understanding as a basis as regards such consultations in this matter. My aim is, and will continue to be, to facilitate a close, correct dialogue between the Government and the Storting on important foreign and security policy issues.

I am therefore pleased, Mr President, to have this opportunity to address you on the situation in Afghanistan and to have a debate in this chamber that can shed light on the formidable challenges facing Afghanistan and the international community.

The situation in Afghanistan is very grave:

• The Taliban and other rebel groups have been actively seeking to undermine the democratically elected government this autumn, and they must be stopped.
• The reconciliation efforts are proceeding too slowly and must be accelerated.
• Afghan institutions and the Government’s authority must be strengthened, and respect for law and order must be established.
• The reconstruction and development efforts are lagging behind and must be stepped up.

Let me underscore that there is a need for a change of pace in the efforts to build sustainable peace in Afghanistan.

This is the unanimous view of the international community – and of the democratic forces in Afghanistan – especially since the fighting in the south a few weeks ago.

Success is contingent on international efforts that unite Afghan society. The international security and development efforts and efforts to build political institutions must constitute a coherent strategy.

At the same time, such a strategy must have a clear national perspective. We must consider the entire country as a whole.

And we must bear in mind the most fundamental aspect of the current situation: Only the Afghans themselves can create lasting peace and stability in Afghanistan. The Afghans themselves must own the peace.

Our efforts must be designed in such a way as to enhance the Afghan people’s confidence in their democratically elected leaders throughout the country. All of our efforts must be based on the principle of Afghan ownership.

In seeking to build a stable Afghanistan, we are also seeking to create a more secure world. We cannot allow Afghanistan once more to become a haven for terrorists. We cannot allow instability, insecurity and violence to get an even firmer grip on this conflict-ridden region.

The threat posed by an unstable Afghanistan is discernible every day in our own society. Heroin that comes directly from Afghanistan is being sold only a few metres from the Storting. If we can persuade the opium growers in the country to switch to other kinds of agricultural production, we will be making a contribution to the security of our own young people. And we will help to weaken the position of greedy criminals.

These observations, Mr President, provide the backdrop for my address here today.

I would like to start with the security situation.

The threat picture in Afghanistan is complex and characterised by considerable local and regional differences. The situation is especially challenging in the south and east. This part of the country has traditionally been a core area for what might be termed Taliban-associated groups. Today it is particularly vulnerable to regional tension and virtually uncontrolled traffic over the border from Pakistan.

The situation in Kabul has also deteriorated. There is a real danger that the unrest could spread to other parts of the country. It is not just the fighting that has become more extensive. There has also been a dramatic increase in the number of suicide bombers and other attacks.

The attacks carried out by the Taliban and other rebel groups are targeted both at Afghans and at international personnel. Representatives of the Afghan authorities, civilians and schools are particularly at risk. The deteriorating security situation is an obstacle to the necessary assistance and development.

Dealing with these threats is a demanding task. We have seen that the presence of troops from distant countries – combined with the fact that the average Afghan does not see any improvement in his or her living conditions – can cause the civilian population to turn against these troops. And we have seen that fighting that takes a large civilian toll can lead to increased recruitment to the Taliban and other illegal armed groups.

Mr President,

The International Stabilisation Assistance Force (ISAF) is playing a key role in stabilising Afghanistan. This presence is intended to enable development. Security and reconstruction go hand in hand.

ISAF’s mandate was issued by the UN Security Council. Its mission includes helping the democratically elected Government to gain real control of the entire country and facilitating economic and social development.

On 12 September this year, the Security Council decided to extend ISAF’s mandate by yet another year. In June and September, the North Atlantic Council (NAC) extended ISAF’s area of operation first to southern Afghanistan and then to the eastern part of the country, which means that ISAF now covers the whole country.

Following the NAC’s decision, Norway – like other Allies – has received requests from the Alliance asking us increase our participation in ISAF.

The Government has considered these requests carefully. In our assessment, we have attached importance to Norway’s considerable military engagement both in Afghanistan and in other international operations – i.e. in Lebanon and the planned operation in Darfur, to our desire to concentrate our military commitment in northern Afghanistan, and to other countries’ contributions.

On the basis of this overall assessment, the Government’s view throughout the autumn has been that Norway should not alter its military contribution to ISAF by sending special forces to the south at the present time.

This was the clarification we made last week, while at the same time stressing that we are following the situation closely.

The decision entails that the Norwegian military contribution to the forces in Afghanistan, which today numbers around 550 women and men, will be maintained at the current level. This means that Norway is still one of the largest contributors per capita.

I would also like to add that the Norwegian contribution to ISAF has changed considerably in quite a short space of time. The number of Norwegian troops in Meymaneh, in Faryab Province, has been doubled since the riots this past February. Our Quick Reaction Force became fully operational in March. Up to a year ago, the major part of our military contribution was located in Kabul.

Additional resources will be needed in the time ahead to meet the demands on us in the north with regard to stabilisation, training the Afghan army and police and building civil society.

NATO has been informed about the Norwegian view. At the same time we have emphasised that in principle Norway can participate with forces in ISAF’s entire area of operation. This follows from the fact that NATO has responsibility for the whole of Afghanistan.

Moreover, Norway is not setting any limitations on the kind of contribution we can make. This also applies to any future employment of Norwegian special forces.

Here I would also like to remind you that it is not unusual for NATO member countries to respond negatively to requests for forces after having made an overall assessment of the situation.

This has been done a number of times, including by Norway. Just to give you one example: The previous Government chose to withdraw an infantry battalion from Kosovo a few months after the riots in 2004, despite requests from NATO for it to remain.

I would therefore, Mr President, strongly advise against turning our responses to requests for military contributions into a question of our credibility as an ally. There are no grounds for this.

If this were the case, then it would also apply to a number of our allies. Norway will stand by NATO, both now and in the future.

Mr President,

Stability, reconstruction and economic and social progress in Afghanistan cannot be achieved by military means alone. In last week’s at times quite heated debate, this fact was pretty much brushed aside with the retort that no one disagrees that we must do more in the civil area. Supposedly, the disagreement concerns our military contribution.

This is an oversimplification. My impression is that parts of the opposition are focusing exclusively on the force contributions, without analysing where Afghanistan stands today – and where it might go tomorrow – based on a broad political solution.

The fact is that international and Afghan representatives in both military and civil quarters are making strong calls for a change of pace precisely in the civil efforts.

The military leaders I have spoken with in the past few weeks, , including the Commander of the ISAF mission, cite the lack of civil progress as the critical factor in today’s Afghanistan. They single out poor coordination and use of resources, inadequate efforts to build the army, policy and judiciary, and insufficient emphasis on Afghan ownership.

Thus, it is not enough simply to agree that assistance should be stepped up. The challenge is to give this assistance a form and substance that are tailored to the situation today, and that will enable us to reverse a dangerous trend. The UN Secretary-General, the NATO Secretary-General and ISAF’s military leaders are concerned about these issues – as well as about the need for ISAF to meet its force goals.

When I took this up during the NATO foreign ministers’ meeting in New York on 21 September this year, it was agreed that it is now urgent to put in place a more effective, coherent strategy. Norway has followed this up with extensive talks in New York, Afghanistan and here in Oslo during the past few weeks. The talks are being continued this week and will pursued in the time ahead.

Mr President,

I would like to stress that this review does, however, have some bright spots. The international community has made a considerable contribution in a number of areas.

Still, it is widely held that the overall efforts need to be increased and must be speeded up and better integrated into a broader strategy. This is what I mean by a change of pace.

This assessment is based on a number of factors. Let me mention the most pressing challenges.

First, stability is contingent on the establishment of effective Afghan institutions. International efforts must help to strengthen the competence of the Afghan authorities.

Second, it is essential that the Afghan Government intensifies its reconciliation efforts and extends its authority to all parts of the country. This is not the case today.

Third, we must ensure that the average Afghan woman and man perceive that our efforts are producing quick, tangible results in their daily lives.

And finally, our efforts must be better coordinated – both among donors and with the Afghan authorities.

Afghanistan has no tradition of democratic rule. Outside the major cities, local tribal structures and other power mechanisms are more important than national authorities and legislation. The Afghan Government has failed to extend its authority sufficiently in all parts of the country for the population to see it as a guarantor of security and progress.

The authorities both in Kabul and in the provinces are suffering an acute lack of expertise and competence. The result is that resources that are available to the Government are not put to use or are poorly utilised. The training of the Afghan police and judiciary has been too slow, and this is one of the weakest aspects of the international efforts. Moreover, there is considerable corruption and inefficiency in both institutions.

Furthermore, Afghanistan is the poorest country in Asia and one of the very poorest in the world. There is a dangerous mismatch between the people’s expectations of the Government and the international community and the results they are experiencing in their own lives.

Moreover, many donor countries have chosen to bypass the Afghan authorities. This is understandable as the intention is to achieve results as quickly as possible, but the result is that the transfer of expertise to the authorities is minimal, and it does not produce the desired effect of strengthening popular support for the Government.

There is, therefore, an urgent need to address these key challenges. The more successful we are in the civil areas I have mentioned, the less we will have to depend on military means. Here Norway has an important role to play.

The Norwegian Government intends to intensify its efforts to promote reconstruction and social and economic development in accordance with the Afghanistan Compact, the comprehensive plan agreed on in London in February by the Afghan authorities and the international community – with the UN, the World Bank and the EU as the key actors. According to the plan, the aim is that the Afghan authorities should regain control of the entire country.

This year, Norway is contributing about NOK 300 million to rebuilding institutions, to education and to poverty reduction. This is an increase of NOK 50 million compared with 2005. We have contributed about NOK 90 million a year for humanitarian relief, reintegration of refugees, mine clearance and strengthening of the police and the judiciary.

Norway is playing a proactive role in efforts to strengthen the position of women. In order to achieve social and economic development and lasting peace, it is necessary to mobilise the resources Afghan women represent.

As I have mentioned, the Government is concerned that Norway should intensify its efforts in Afghanistan. We have stepped up our contributions to ISAF, and we are closely monitoring the military situation. We will also provide further contributions to meet short-term, acute needs and provide targeted assistance for more long-term tasks.

As regards short-term assistance, I would particularly like to draw your attention to the needs that have arisen due to the drought and the fighting in the south. On 22 October the Afghan Government and the UN issued a joint appeal for emergency relief for the many people who are affected by the drought and for the roughly 20 000 families that have fled their homes following the hostilities in the south. It is estimated that more than NOK 270 million is needed. Norway will respond positively to this appeal.

The humanitarian efforts are particularly difficult in the south, but even there it is possible to reach those who need assistance. This humanitarian space must be widened and utilised. We must ensure close civil-military coordination, while at the same time maintaining a clear division of roles between military and civil actors. Humanitarian efforts must be based on humanitarian principles.

The hostilities in the south have also resulted in extensive destruction of homes and infrastructure. In NATO, the Netherlands has urged us to quickly provide funds for the reconstruction of these local communities. We are currently considering this request. It is, however, important that the reconstruction is carried out on Afghan terms. And as I have already mentioned, this is the only way of ensuring a sense of local ownership and strengthening the Afghan authorities.

It is also important that we help to enable the Afghan Government to step up its reconciliation efforts and to extend its authority to all parts of the country.

These efforts, aimed at linking the central authorities more closely with traditional local structures, are essential in order to secure support for the Government in Kabul among people in the provinces. Mobilising the support of local leaders is an important element in fighting the enormous opium problem.

In order to pave the way for future development and stem further recruitment to the Taliban and other rebel groups, it is also vital to support the Afghan Government’s efforts to improve education – including in war-torn provinces.

Families that today choose to send their sons to religious schools in Pakistan must see that there are alternatives in their own country, and that these are compatible with their faith and culture, and that they offer their children knowledge and vocational training that is of use to their communities.

As I mentioned before, Norway will also intensify efforts to build up the Afghan police and judiciary. The EU is considering taking on particular responsibility for building up these institutions. This is a welcome development. If the EU chooses to play a greater role in this field, I would expect Norway – along with other third countries – to be invited to participate. We would take a favourable view of such an invitation.

The Government intends to step up the transfer of competence and expertise to Afghan authorities – both to the central ministries and to the provincial authorities. This is vital in order to make the Kabul Government more visible and effective throughout the country, and is essential if the population is to give its support to the central Government rather than to local groups that are opposing it.

We must demonstrate to the Afghans that we are prepared to think and act in a long-term perspective as regards institution-building. At the same time, the UN, the World Bank and donor countries must make it clear to the Afghan authorities that they must act more resolutely to combat corruption in their own institutions, in the police and in the judiciary.

Norway has taken on particular responsibility in Faryab Province in the north, where we are the lead nation in a provincial reconstruction team (PRT). So far this year, we have spent NOK 40 million on our efforts in this province. This is beginning to produce results, and these efforts will be stepped up next year.

This will include increased efforts to reconstruct critical parts of the province’s infrastructure. If more progress is made in the north, this will help to reduce the risk of unrest spreading throughout the country.

Mr President,

From what I have said, it should be clear that the Norwegian Government is planning to significantly increase Norway’s efforts in Afghanistan. Our total civil engagement is expected to amount to about NOK 0.5 billion next year. This is an increase of NOK 100 million in our humanitarian and long-term development efforts in Afghanistan. In addition, we will seek to alleviate the most acute humanitarian needs by means of allocations in this year’s budget.

The international civil efforts are limited compared with what we have seen in other countries affected by conflict. We have made it clear to the UN and the World Bank that we would like them to play a more active role in coordinating efforts in the civil sphere.

However, donor countries and other donor entities must show a greater willingness to accept such coordination. If we succeed on this point, it will also be easier to promote Afghan ownership, which is the main challenge in the current situation.

Mr President,

I opened by stressing the gravity of the situation in Afghanistan. I hope I succeeded in getting this point across.

The challenges are vast, and they can only be resolved through broad international engagement where civil and military efforts are viewed in a political context.

We have limited time at our disposal. The hostilities in the south were serious. The military analysis of the situation in the south is that it is stabilised, but not stable. ISAF has a key role to play in the south, as well as in other parts of the country.

If Afghanistan is to be a success, we must not underestimate the magnitude and scope of the challenges we are facing. It is therefore vital that we succeed in making a change of pace.

This is precisely what the Government wants Norway to contribute to. And as I said by way of introduction, the Government will maintain close contact with the Storting and its bodies on this important matter.