Foreign Minister Jonas Gahr Støre’s Statement to the Storting

Afghanistan and Iraq: Norwegian military and civilian contributions

Oslo, 9 November 2005

Check against delivery

Translation from the Norwegian

Mr President,

For over 50 years Norwegian men and women in uniform have served the UN, NATO and the international community in the cause of peace. Just as other countries contribute to our security, we work for peace and development in other countries and seek to give their peoples hope. There is broad support in the Storting for the main lines of this policy.

We can look at this as a policy of international solidarity and equitable distribution: we who live in a land of opportunity, we who have most, are seeking to open up opportunities for those who have least. Faith in the future will foster development and hope, as individuals and communities see that investing in people is worthwhile.

Norwegian military personnel are widely respected internationally. Our men and women are highly educated, well trained and equipped and known for their good judgement in the field. Their service, combined with our efforts in the civilian field, and our cooperation with international organisations and Norwegian NGOs, represents the practical application of our foreign policy on the ground.

However, I would like to emphasise that military efforts alone can never suffice to resolve conflicts of the type we are witnessing in Afghanistan. What will make a real difference is better living conditions, improvements in the humanitarian situation and the prospect of employment and development. This is what is needed to give people in Afghanistan or Iraq faith in their own future. The main task of military personnel is to prepare the ground for civilian efforts. In this way, they are helping to provide long-term and stable solutions for building a well-functioning civil society.

I gather from the talks I have had since I took over as foreign minister that other countries are aware of the size and importance of Norway’s military and civilian contributions to the world community. Our closest allies know that our contribution is larger than would be expected given the size of our population.

As stated in our inaugural address of 19 October, we have therefore begun an evaluation of the civilian and military contributions Norway will be making to international operations in 2006.

The government wishes this to be an open process, and this is the reason why I am giving this statement. It will be appropriate for me to make a broader foreign policy statement to the Storting at a later date. Today, I will be focusing on how to ensure that the civilian and military resources we contribute to international operations are employed in the best possible way.

However, I would like to start by emphasising how important it is that any Norwegian military engagement in international operations is based on the UN Charter and has a clear UN mandate. In its foreign policy, this government will give even greater priority to supporting a world order based on the principles of the UN Charter and on the crucial condition that the use of military force must be in accordance with international law.

Furthermore, the government will as a general rule channel Norway’s international efforts through the UN and NATO.

Finally, I believe it is important we, as a NATO ally and an active member of the UN, keep our friends and allies closely informed of the reasons for our decisions and that we coordinate our efforts as far as possible with those of our allies and partners.

Since taking office, the government has devoted time to providing information and holding consultations with Norway’s allies and partners, including the Secretaries-General of NATO and the UN. My impression is that our policy is clearly understood and has been well received in the UN and in NATO and key member states.

One of our aims is to concentrate Norwegian efforts. If our contribution is to be effective, it must not be spread too thinly. The need for international operations in many parts of the world is enormous. This means we must make choices and assign priorities. Our resources are limited and our efforts must be focused.

As my statement will make clear, Afghanistan will be this government’s main priority, and I will be concentrating on how we can best contribute to stabilisation and reconstruction in Afghanistan and Iraq.

Mr President,

I would like to outline the main principles on which our future civilian and military contributions to Afghanistan and Iraq will be based, as set out in the government’s inaugural address.

Firstly, our military engagement in Afghanistan will be channelled through NATO’s International Security Assistance Force (ISAF). We will therefore terminate our participation in the US-led operation Enduring Freedom at the next rotation, when the mandate period ends in January 2006.

Secondly, Norwegian staff officers and training personnel will be withdrawn from Iraq in the middle of December, when their current assignment ends. Norway will nevertheless do its share to support the rebuilding of a democratic Iraq.

Thirdly, the government intends to step up the Norwegian participation in UN operations, with a particular focus on Africa. The government wishes to re-establish Norway’s credibility as a contributor to UN-led peace operations. We want to enhance the UN’s ability to lead complex operations because we know that in many cases the organisation is well suited to the job.

Mr President,

I would now like to expand on the government’s plans for Norway’s future engagement in Afghanistan and Iraq.

The situation in Afghanistan is still very difficult. Although the parliamentary elections in September were an important step in the right direction, local warlords are continuing to undermine the government, and there are signs that illegal groups with terrorist links are gaining ground in the border areas and other parts of the country. Killings and acts of violence are on the rise again. We also know that prominent politicians and centrally placed military officers have connections with illegal drug production.

This is impairing the political process, the development of stability and economic reconstruction. Widespread corruption, an ineffective police force and inadequate rule of law are making it difficult to deal with these problems.

The government considers it important for the international community to assist the Afghan authorities in their efforts to rebuild and stabilise the country.

The next milestone will be an international conference in London in January, where the international community will discuss its future plans for assistance to Afghanistan. The UN will play a key role, together with the EU, NATO and the G8. Norway will seek to contribute towards the success of the conference. Norway will also continue its substantial support for economic and social development in the country.

However, no development is possible without security. We will therefore continue to work for security and stability.

NATO is playing an important part in the stabilisation efforts. ISAF was established at the end of 2001 at the request of the UN Security Council and the Afghan government. NATO has led ISAF since 2003, which gives the Alliance considerable responsibility in the efforts to stabilise Afghanistan – a responsibility that is shared by all the allies.

This is a major task. In June last year the member countries declared that the stabilisation of Afghanistan is the Alliance’s main priority. They also declared that this is a long-term project, which will require the efforts of both allies and partner countries. A total of 35 allies and partner countries are contributing to the stabilisation of Afghanistan through ISAF.

Norway will take its share of responsibility. We will do this by participating in ISAF and by helping to build up Afghan security and judicial institutions. We are prepared to maintain at least the same level of military involvement, and to adjust the form of our contribution in line with NATO priorities.

ISAF is now being expanded at the provincial level in order to strengthen the authority of the central government outside Kabul. The Provincial Reconstruction Teams (PRTs) are playing a key role here. Military-civilian cooperation is important if they are to be successful. The PRTs are also paving the way for reform in the security sector and are assisting regional and local authorities in the reconstruction work.

At present Norway has around 400 troops in ISAF. I would like to point out that this is a substantial contribution. Most of these troops are located around Kabul. In 2006, as part of the reorganisation of ISAF, we will be concentrating the Norwegian troops in northern Afghanistan. We have already increased our engagement outside Kabul. In September this year we took over the leadership of the PRT in Meymaneh in north-west Afghanistan.

As the number of ISAF troops grows and their presence in the more unstable areas in western and southern Afghanistan increases, more efforts will have to be directed to ensuring their safety. Air support is an important element in NATO’s troop protection. In this connection, Norway has been requested by NATO to provide three or four F-16 aircraft with the necessary resources. The aircraft are to be in Afghanistan for three months during the spring of 2006. In its budget proposal for 2006, the Bondevik government suggested that Norway should comply with this request. The new government agrees with this standpoint.

As I mentioned at the beginning, the termination of Norway’s involvement in Operation Enduring Freedom will make it easier for us to concentrate our efforts on the NATO-led ISAF.

Mr President,

The government considers it important for Norway to continue its broad and long-term civilian engagement in Afghanistan in addition to its military involvement. Norway’s total development assistance to Afghanistan this year is around NOK 300 million. This is targeted towards three main areas: education, building up the public administration and improving living conditions. In addition, support for humanitarian efforts is provided through Norwegian NGOs.

The government believes it is important to distinguish between the mandate for our military engagement and the mandate for humanitarian organisations. Humanitarian efforts should be designed to help all people in need and should make no distinctions; moreover they should not form a “soft element” in a military strategy to win the support of parts of the population.

Norway is also involved in building up the Afghan police and justice sector. We will continue to attach great importance to these efforts. All experience shows that strengthening the local police and judicial authorities is a decisive factor for long-term stability and political development in a country. However, the situation in Afghanistan illustrates how difficult it can be to carry out far-reaching reform in this particular sector.

Norway has, therefore, given special priority to strengthening the police and the judicial system. We have allocated up to 10 persons to provide assistance to the police force in Afghanistan. Our main efforts are directed towards training in human rights, administration and leadership and towards the participation of women in the police. Integrating women into the police force is a particularly challenging task given the traditional position of women in Afghan society. We are also providing Norwegian lawyers from the Norwegian Crisis Response Pool, who are supporting the Afghan authorities in the fight against illegal drugs.

Norway’s contributions are appreciated by the Afghan authorities and by our international development partners. We wish, therefore, to continue, and if possible to increase our contribution to reforming the police and judicial sector in 2006.

Mr President,

The situation in Iraq continues to be serious. The security situation is unstable, and violent attacks against the Iraqi authorities and foreigners in the country are continuing with undiminished force. The main victims of these attacks are the civilian population, who are being prevented from rebuilding normal lives.

At the same time, we must be glad that the referendum on the new constitution on 15 October proceeded better than expected. The referendum was carried out in an orderly and proper manner by the Iraqis themselves, with satisfactory support from the UN. The timetable set out in the UN Security Council resolution 1546 is thus still being adhered to.

However, the fact that many Sunni Arabs did not support the constitution gives grounds for concern. Their lack of support is due to the fear that the federal form of government that has been chosen will lessen their influence and reduce their access to energy and water resources.

It is important that the Sunni Arabs feel that it is in their interests to take part in the further political process towards the election of a new national assembly in December. The agreement between the three sections of the population that the new national assembly should have the authority to amend the constitution may help to increase Sunni Arab interest in the elections.

Norway is supporting the political process in Iraq both through the UN and in other ways. The whole international community is responsible for ensuring that the Iraqi people can live safely in a country that is well governed and where they can influence future developments.

The difficult security situation in Iraq means that there is still a considerable need for assistance from the rest of the world. The international community must help both to establish security and to rebuild the country. Norway is prepared to take its share of this responsibility.

However, we intend to change the form of the Norwegian contribution. I would like to point out, Mr President, that Norway is the only NATO member that was against the invasion of Iraq but that has nevertheless chosen to participate in the stabilisation force.

The government’s decision means that the mission of the Norwegian staff officers and training personnel in Iraq will be terminated in mid-December. We consider it important to terminate this assignment in an orderly and open manner and in dialogue with our allies.

The government attaches great importance to continuing to build up the security sector in Iraq on the basis of democratic principles and respect for human rights. We are also bearing our share of this responsibility as a member of NATO. The government will therefore continue to take part in the allied efforts to provide training for Iraqi security forces.

Eight allies (Belgium, France, Germany, Greece, Latvia, Luxembourg, Slovenia and Spain) are not providing training personnel in Iraq, but are giving security-sector training outside the country, as Norway will now be doing. We will continue to provide training at NATO’s training centre at Jåtta.

There will be no changes as regards the Norwegian military personnel who are serving within NATO’s command structure. This form of participation is a clear consequence of our NATO membership.

Mr President,

In Iraq, as in Afghanistan, the government attaches crucial importance to supporting the establishment of democratic governance based on the principles of the rule of law. The UN must play a central role in achieving this objective. The UN alone has the authority and legitimacy to coordinate the international effort.

The government will therefore consider ways of increasing support to the UN’s efforts in Iraq.

We will also continue the training of Iraqi police officers. A competent civilian police force that follows recognised democratic principles is decisive for Iraq’s further development.

The two courses we have held so far for Iraqi police officers in Norway have been very well received. A third course will be held in a week’s time. The participants are made familiar with police work in a democratic society. As in Afghanistan, the main emphasis is on leadership and administration, human rights and the participation of women in the police force.

This training programme will continue in 2006. Norwegian support for the training programmes in the region will also be considered.

We must not forget that the population has a number of other needs that we should help to meet, both in the humanitarian field and in connection with establishing long-term stability. Access to clean water, satisfactory sanitary conditions, schooling for children and health services are at the top of the average Iraqi’s wish list. The UN’s capacity to work in this field must be strengthened.

Norway’s total assistance to Iraq for the period 2003-2006 amounts to NOK 540 million. Some of this support is channelled through the International Reconstruction Fund Facility for Iraq, which is administered by the UN and the World Bank.

We are also continuing to provide humanitarian support, as we were doing before the election in January, through the UN and Norwegian NGOs such as Norwegian People’s Aid, Norwegian Church Aid, Save the Children Norway, the Norwegian Red Cross and the Tromsø Mine Victim Resource Centre.

In the long term we must help Iraq to become self-supporting. It is therefore vital to rebuild the Iraqi petroleum industry. Here Norway is particularly well-qualified to make a contribution. We will strengthen our cooperation with the Iraqi authorities in the petroleum sector, focusing particularly on the transfer of Norwegian experience and knowledge, technology and field management expertise.

Mr President,

Three million people in Pakistan are at risk of dying of hunger and cold. So far, Norway has provided NOK 200 million in assistance and has urged other countries to honour the pledges they have given on assistance to Pakistan.

The earthquake has renewed the discussion on how military organisations can best be used in humanitarian relief efforts. We saw how some allies sent in military resources to relieve human suffering after the tsunami in Asia. And there is now an enormous need in Pakistan for planes and helicopters that can transport assistance to the earthquake victims.

Norway will adhere to the clear principle for such civilian-military cooperation – that humanitarian aid should as far as possible be administered by civilians and coordinated by the UN. However, military actors can have an important contribution to make.

Across the border in Afghanistan, there are important NATO military resources that could be employed to help Pakistan. NATO also has significant capacity and the expertise needed to organise and carry out long-distance transport operations.

We must consider how NATO can further support the UN-led relief effort. The UN has requested NATO to provide air transport to the earthquake-affected area precisely because this is a field in which NATO has special expertise. Norway and a number of other allies have complied with this request.

The government has allocated NOK 10 million for transport efforts organised by NATO. This forms part of our total earthquake relief to Pakistan.

Mr President,

As has been made clear in my statement, the government wishes Norway to continue its support for rebuilding and stabilisation in Afghanistan and Iraq.

I believe there is broad agreement on this objective in this chamber. We will assume our share of the responsibility by playing an active part in international conflict resolution, maintaining our firm support for the UN and remaining a dependable ally in NATO.