A Press Dinner with SACEUR General John Craddock Applying Lessons from Afghanistan: Actions and Outcomes
Bibliothèque Solvay, Brussels
SECURITY & DEFENCE AGENDA
A Security & Defence Agenda Report Rapporteur: Julian Hale Photos: David Plas Year of publication: 2007
SECURITY & DEFENCE AGENDA Bibliothèque Solvay, Parc Léopold, 137 rue Belliard, B-1040, Brussels, Belgium T: +32 (0)2 737 91 48 F: +32 (0)2 736 32 16 E: [email protected] W: www.securitydefenceagenda.org
SECURITY & DEFENCE AGENDA
Contents
Executive Summary 4
SACEUR’s General John Craddock—opening remarks 7
The Q&A Session 9
Can the insurgents be militarily defeated? 9
Can the gaps in NATO shortfalls be plugged? 10
What can NATO do to tackle the narcotics trade in Afghanistan? 11
The role of the international community 12
NATO planning—the longer term 13
List of participants 16
About the SDA 18
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Applying Lessons from Afghanistan: Actions and Outcomes
concerned, he feels that this is slow in Executive summary coming but says NATO is coming up with hand-me-down weapons and gear
even if there are sometimes delays in Afghanistan: We cannot fail finding money to ship the equipment. As regards to the police force, the re- Supreme Allied Commander for duction in the pay gap between soldiers Europe (SACEUR) General Craddock and the police is one measure that has sees Afghanistan as a “very complex been taken. In addition, a US police situation” in which the international training mission which is to start imme- community “cannot fail”1 and that diately, will focus on equipment and NATO’s aim is to create the conditions training opportunities to develop Af- to allow Afghans to rebuild their coun- ghan forces rather like a gendarmerie. try. For him, the situation is improving but it is still a race against time to get the Afghan army and police trained and Making the Taliban irrelevant in a position to take over from NATO. The government needs to put in place Craddock feels that it is not so much domestic institutions and good govern- about defeating the Taliban as making ance that Afghans have confidence in. them irrelevant and that they would become so if people trust the govern- He is optimistic that the Afghan secu- ment to deliver social and welfare ser- rity forces will be able to take over re- vices to the people. Positive develop- sponsibilities in the next few years. ments including more and more chil- dren in schools rather than Madrasahs where they are taught about extrem- Afghan army and police ism, and practical projects such as road construction or hydroelectric power Craddock says that NATO would like systems, are carried out by NATO to have greater involvement of Muslim provincial reconstruction teams. In nations and hopes that North African terms of reconstruction, he believes and Middle Eastern countries will pro- that the tendency to lead with the mili- vide teams of military experts as part of tary operation and then consider the a growing programme to train Afghan reconstruction only afterwards needs military units. “They are interested,” he to inverted. said. “We're going to send a team down to Egypt very shortly, so I think there's some possibilities here.” He noted that NATO regional headquar- Counter-narcotics support ters will be establishing coordination Although NATO does support Afghani- centres to ensure that there is coordi- stan counter-narcotics forces with lo- nation between the International Secu- gistical support, it does not have a man- rity Assistance Force (ISAF) and the date for drug eradication and would Afghan army once the latter start car- need more resources to carry out such rying out autonomous operations. As a task. Progress has been made on re- far as equipping the Afghan army is
Page 4 1 Quoting the NATO Secretary General, Jaap de Hoop Scheffer. SECURITY & DEFENCE AGENDA
A Press Dinner organised by the SDA in cooperation with the Hanns Seidel Stiftung
ducing the amount of poppy cultivation Capability shortfalls in Afghanistan but there is still a long way to go. In his view, counter- In terms of capability shortfalls, he re- narcotics action must include some fused to name and shame countries and eradication, action against the leader- mentioned that there had been incre- ship of the trafficking networks and a mental improvements. However, he ban on the movement of drugs across argued that a clearly resourced NATO borders. sends a message that there is commit- ment to the success of the operation. His view was that every shortfall each soldier at a greater risk of being killed. Role of the international As regards ISAF protection for the EU community police mission in Afghanistan, Craddock stated that ISAF will always provide He stressed the important role played support for police outfits in extremis. by civilian actors from the international community in training government offi- cials, fighting corruption, fighting the narcotics trade and delivering eco- Measuring progress nomic infrastructure such as roads. He believes that success in Afghanistan Craddock also says that SHAPE should be judged on the delivery of a (Supreme Headquarters Allied Powers safe and secure environment and a bet- Europe) is developing one set of met- ter way of life for Afghans. In that rics to measure progress, for example sense, Craddock believes that that the on the extension of the Afghan govern- comprehensive approach is working ment’s authority across the country. better in some parts of the country He pointed out that measurements of than in others, that the provincial re- the effectiveness of actions needed to construction teams are working fairly be continually scrutinised and refined well but that there is room for im- and, for the longer term, that there provement in the long-term recon- would inevitably be lessons from Af- struction side of things, where interna- ghanistan for future operations. tional actors come into play. David
Leakey, the Director General of the European Union Military Staff, agreed Deployable special operations with the General that there should be a metric strategy to measure the pro- Overstretch was a problem referred to gress of the international community by Herman Schaper, Ambassador of the across the board, that the international Delegation of the Netherlands to community should be engaged from day NATO. He also asked if, given that we one and that there should be Afghan are moving from a world of classical ownership alongside the international warfare to one where there is greater community’s efforts. need for counter-insurgency, there should be more focus on special forces and whether the remit of the military should be expanded, to include the role
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Applying Lessons from Afghanistan: Actions and Outcomes
of a reconstruction worker. Craddock said that things were moving from a Cold War construct of big armies to one where it is about deployable spe- cial operations for different tasks. There was a need to catalogue “what we are doing”.
Better long-term planning In terms of long-term planning, Craddock described the process of de- veloping capability packages in NATO as “an excruciating process” that needs to improve and that “we need to do more force planning informed what we are doing, not force planning as an end unto itself, its got to be informed by the real world; operations Active En- deavour, Kosovo, Afghanistan, training mission in Iraq. Informed by the reality of operations not informed by the doc- trines that we bring to the table in 26 different fashions”.
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A Press Dinner organised by the SDA in cooperation with the Hanns Seidel Stiftung
tion, especially in the south and east of SACEUR General John Craddock – the country, as “difficult” but said that opening remarks “NATO has the upper hand right now with more ISAF (International Security Assistance Force) forces than a year ago and better capability”. He referred In his opening remarks, Supreme Allied to statistics from the Asia Foundation, Commander Europe (SACEUR) Gen- which showed that 90% of Afghans eral Craddock likened the roadmap for trust the Afghan national army. The Afghanistan to the complexity of the army is said to be well on the way to rules of cricket for American football reaching a target of 80,000 soldiers by fans. Although a humorous comment, the end of 2010 and is well over 50% in his point was clear - Afghanistan is an terms of retention rates. The SACEUR “extraordinary and very complex situa- said that the Afghan army is eager to tion” in which the international com- take on responsibility for security in munity “cannot fail”. He Afghanistan and highlighted pointed out that foreign sol- the importance of ‘OMLTs’ - diers would not be tolerated NATO operational mentoring indefinitely. In general terms, and liaison teams training he pointed to: forces embedded in the Af- ghan army. He described OMLTs as providing “the 1) the race against time to most important contribution meet challenges such as the NATO is making in providing Afghan security capacity taking security and stability in Af- over from NATO and the de- ghanistan” and being “our best velopment of domestic institu- investment in Afghanistan's tions and good governance; General John successful future”. Craddock 2) the importance of NATO SHAPE taking a long-term approach to the campaign; A comprehensive approach, including the international 3) the threat from opposition forces, community such as the Taliban but including other insurgents – “tribal warlords are for Craddock also stressed the need for the most part not organised but have a NATO and the international commu- common goal of preventing the democ- nity to continue to provide improve- ratically elected government of Afghani- ments in terms of the comprehensive stan from becoming the dominant gov- approach to Afghanistan. His view is erning body”. that other players not in military uni- form play an important role in the de-
velopment of democratic institutions Security in Afghanistan that are acceptable to Afghans – train- ing government officials, fighting cor- Craddock described the security situa- ruption, fighting the narcotics trade and
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Applying Lessons from Afghanistan: Actions and Outcomes
delivering economic infrastructure such ment and a better way of life for Af- as roads. ghans. Afghan people, are in great need of electricity, clean water, schools and healthcare, which are of disparate qual- ity throughout the country. National Measuring progress Provincial Teams are carrying out He also said that SHAPE (Supreme quick-fix projects such as building wa- Headquarters Allied Powers Europe) ter wells and providing humanitarian was developing around 63 metrics to aid but it is important that there is measure progress, for example on the long-term investment from the interna- extension of the Afghan government’s tional community. There needs to be authority across the country. Currently long-term consumer activity so that different countries have autonomous jobs can be created. databases of metrics, with General Craddock saying that the idea was to bring them all together. “To date, as- Time is of the essence sessments of progress have been made against anecdotal evidence as opposed Summing up, General Craddock made to trend analysis. We must change the point that measurements of the that,” he said. With Afghanistan being effectiveness of actions needed to be NATO’s largest ground area operation, continually scrutinised and refined. he noted that there would inevitably be Benchmarks need to be set so that ac- lessons from Afghanistan for future op- tions that are not producing the in- erations. tended effect can be changed. Further- more, there needs to be a comprehen- sive approach, involving actors such as the EU, the UN and the World Bank Capability shortfalls from day one, “something which has NATO has agreed to a statement of arguably not been the case”. Such ac- requirements but is still short of key tors need to be involved over the long capabilities and enablers, especially in term. “Time is of the essence,” con- terms of surveillance/intelligence, engi- cluded General Craddock, “and the neers and air support. Each country has most important player in this complex issues on these shortfalls but Craddock venture is the Afghan government”. argued that a clearly resourced NATO sends a message that there is commit- ment to the success of the operation.
Long-term commitment Craddock insisted that success in Af- ghanistan is not to be judged on the military operation as such but on the delivery of a safe and secure environ-
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A Press Dinner organised by the SDA in cooperation with the Hanns Seidel Stiftung
tion of hydroelectric power The Q & A session with the help of NATO forces. In some villages, this is
said to be producing enough Can the insurgents be power for one light bulb for every house, “which is pretty militarily defeated? good because they did not Rob Watson, the BBC World have anything before”. It Service’s defence correspon- means that they can have light dent, pointed out that the at night and that during the Taliban cannot be militarily day the electricity can be used defeated. He also asked if the Rob Watson, BBC to run the local mill, explained government led by President World Service the General. However, there Hamid Karzai would ever be have been problems of jeal- able to instil good governance in the ousy from regions without such ad- country. General Craddock’s view was vances who yearn for things to move at that it is not so much about defeating a faster pace – again highlighting the the Taliban as making them irrelevant. importance for effective reconstruction Later on the same evening, he pointed teams. out that the Taliban would become ir- relevant if people were to trust the government to deliver social and wel- Ongoing problems he referred to in- fare services to the people. cluded organised crime and drug traf- ficking in the north, plus criminal gangs
and organised crime that are develop- Craddock wanted a situation in which ing in Kabul. Tribal areas also continue people believe that government is a to be uncontrolled. Pakistani authori- positive feature in their lives at na- ties need to have more control over tional, provincial and local levels. Af- their border areas as they are being ghans were yet to feel that, particularly used by Taliban extremists to recruit in the south. According to NATO PRT and find safe havens there. “The border (Provincial Reconstruction areas largely have been, and continue Team) reports, there are to be, out of control,” he said. more and more children in “That will not cause us to fail schools today. In Craddock’s in Afghanistan but without view, this means that fewer some control by Pakistan in are going to Madrasahs those areas, it will preclude us [Islamic religious schools] in from prevailing. The insur- tribal areas, where many are gents will always have a safe being taught about extremism. haven, a sanctuary where they can go to regenerate, recon- stitute and when the time is right, reappear.” Another example he gave where things are going right in Geoffrey Van Orden, Afghanistan was the introduc- European Parliament
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Applying Lessons from Afghanistan: Actions and Outcomes
Can the gaps in NATO what is needed in terms of shortfalls be plugged? security and plan the military operation accordingly.
MEP Geoffrey Van Orden’s view was that NATO coun- As far as equipment for the tries were not coming up with Afghan army is concerned, the troops needed to fulfil the Craddock feels that this is mission and that NATO mili- slow in coming. NATO is tary operations were not be- coming up with hand-me- down weapons and gear for ing followed up with recon- Fidelius Schmid, struction to consolidate mili- the national Afghan army and Financial Times tary gains. He also pointed ensures that they are safe to Deutschland out that Members of the Af- fire. He pointed out that it will ghan Parliament had recently told him take some 4 million euros to there was a lack of close relations be- ship donated gear from the US to Af- tween central government and people, ghanistan however, there is currently a lack of explanation for the presence no money to ship it. of foreign forces (who many see as oc- cupying forces) and a lack of a clear policy regarding Afghan’s neighbours. Financial Times Deutschland reporter Fidelius Schmid asked how far short- comings had hampered NATO’s suc- Craddock refused to name and shame cess in Afghanistan. Craddock said that countries but said there were regional commanders had little or no “incremental improvements”. One ma- flexibility in their security/stabilisation jor problem he pointed to remained missions and were continually moving the cost of equipment. For example, their forces around regional commands helicopters were using blade rotors at to address security threats. This means three times their intended usage be- that they are not able to hold ground cause of the tempo of operations. where they need Afghan security forces to take over later on. In terms of the statement of requirements, he said that each shortfall put every soldier at a In terms of reconstruction, he believes greater risk of being killed. For every that the tendency to lead country, this would also with the military opera- mean a longer effort and tion and then do the re- an increased cost. construction afterwards needs to inverted. His view is that the approach should be to look at where reconstruction –
e.g. roads and bridges – Jochen Bittner is needed, then work out Die Zeit
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A Press Dinner organised by the SDA in cooperation with the Hanns Seidel Stiftung
material aspects of the drug business for now. What can NATO do Responding to Cham- to tackle the pion, he reiterated that narcotics trade in there was no mandate Afghanistan? for NATO for drug eradication. If NATO were to carry out that Gianluca Cazzaniga, task, he pointed out that Die Zeit European cor- Italian Defence Review it would increase the respondent Jochen Bittner was keen to statement of requirements significantly know what NATO could do about the and generate the need for more forces. problem of poppy cultivation and drug trafficking. He conceded that it is not officially ISAF’s work but pointed out that warlords are profiting from poppy- The role of the international growing. Marc Champion, the deputy community bureau chief of the Wall Street Journal Gianluca Cazzaniga, correspondent for Europe asked if NATO should priori- Italian Defence Review, argued that the tise destroying poppy crops. comprehensive approach was not working, that the UN was not stepping up to the plate and that a common Answering Bittner, Craddock said that strategy was lacking from all major ac- NATO has no requirement to eradi- tors. cate poppy growing but that it does support Afghanistan counter-narcotic forces with logistic support. The major- Craddock believes that the comprehen- ity of the poppy growing is done in sive approach is uneven and is better in Southern Afghanistan with the Hel- some parts of the country than in oth- mand province producing 50% of the ers. His view is that the PRTs, or ‘retail world’s supply2. Progress has side of the approach’, is work- been made on this issue but ing fairly well but that the he opined there is still a long long-term ‘wholesale side’, way to go. In his view, where international actors counter-narcotics action must come into play, is “where we include some eradication, ac- need to coalesce”. tion against the leadership of the trafficking networks and a ban on the movement of drugs across borders. He David Leakey, the Director does not believe that Afghani- General of the European Un- stan is a ‘narcostate’ as yet. ion Military Staff, agreed with Indeed, the OMF (Opposing Craddock on the critical need Military Forces) were more David Leakey, to establish an effective Af- focussed on ideology than the European Union ghan government and on the Military Staff
2 A total of 90% of the world’s supply comes from Afghanistan. Page 11 SECURITY & DEFENCE AGENDA
Applying Lessons from Afghanistan: Actions and Outcomes
need to suppress insurgents, all about and perhaps it was warlords and criminals. He time for a new Transatlantic also agreed that there should bargain where NATO would be a metric strategy to meas- provide defence and security ure the progress of the inter- of territory and citizens in re- national community across the turn for collective support for board, that the international essential expeditionary de- community should be engaged ployments. Craddock agreed, from day one and that there adding that it is difficult to do should be Afghan ownership both (territorial protection alongside the international and expeditionary operations) community’s efforts. Leakey Herman Schaper, with less than 2% of GDP be- also backed Craddock with Delegation of the ing spent on defence. regard to the fact that the Netherlands to Craddock asked if [NATO’s] military plays a key role in set- NATO Article 5, whereby ‘an attack ting the conditions to establish on one is an attack on all’ the Afghan economy. should also hold true in Afghanistan when an attack on a soldier, marine or airman of a NATO country occurs. “I think it is a fundamental issue that we Herman Schaper, Ambassador of the have to address and that should be de- Delegation of the Netherlands to bated.” NATO, pointed out that NATO is do- ing well in Afghanistan but that the real The general also welcomed the idea of problem is the lack of contributions “dialogue and discussion” over the pos- from the international community in sibility of France rejoining the inte- terms of reconstruction and develop- grated military structure of NATO. He ment plus the weakness of the Afghan also welcomed openness with the EU. government. “Let’s figure how to cooperate not compete. Let’s see where we have
common interests, where we can gain NATO planning – the longer term some efficiencies […] I think that there’s an opportunity we can Edgar Buckley, Senior Vice do that in the near future,” he President for European Busi- said. ness Development of Thales, argued that, given the critical importance of success in Af- Ambassador Schaper, asked if ghanistan, those Allies not there should be more focus participating by providing sup- on special forces and if the port (helicopters if they have remit of the military should be them) were in a sense voting expanded to include recon- against NATO and saying “I struction workers. Craddock don’t need the Alliance any said that things were moving more”. They needed to be Edgar Buckley, from a Cold War construct of reminded of what NATO was Thales big armies to one where it is
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SECURITY & DEFENCE AGENDA
A Press Dinner organised by the SDA in cooperation with the Hanns Seidel Stiftung
about deployable special operations for different tasks and that there was a need to catalogue “what we are doing”.
Wrapping up the evening’s debate, Craddock turned to long-term planning and described the process of develop- ing capability packages in NATO as “an excruciating process” as regards the need for verification, etc. Referring to some 182 capability packages that are “somewhere in the process” and of which some have been being processed for some five/eight/ten years, he said that “this ain’t gonna work and we’ve got to get into the real world”. He added that “we need to do more force planning informed what we are doing, not force planning as an end unto itself, it’s got to be informed by the real world; operations Active Endeavour, Kosovo, Afghanistan, training mission in Iraq. Informed by the reality of opera- tions not informed by the doctrines that we bring to the table in 26 differ- ent fashions”.
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Applying Lessons from Afghanistan: Actions and Outcomes
Cocktail before dinner
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SECURITY & DEFENCE AGENDA
A Press Dinner organised by the SDA in cooperation with the Hanns Seidel Stiftung
Eric Bonse, Karel Kovanda Paul Ames Handelsblatt European Commission Associated Press
Marc Champion, Markus Russ, Ricardo Martinez De Wall Street Journal Hanns Seidel Stiftung Rituerto, Europe El Pais
Mark John, Stewart Eldon, Lorne Cook, Reuters Delegation of the Agence France Presse United Kingdom to NATO
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Applying Lessons from Afghanistan: Actions and Outcomes
List of Participants PAUL AMES Associated Press Defence Correspondent
OTTMAR BERBALK FOCUS Bureau Chief
JOCHEN BITTNER Die Zeit European Correspondent
ERIC BONSE Handelsblatt Journalist Foreign Policy
EDGAR BUCKLEY Thales Senior Vice President for European Business Development
GEERT CAMI Security & Defence Agenda (SDA) Managing Director
GIANLUCA CAZZANIGA Italian Defence Review Correspondent
MARC CHAMPION The Wall Street Journal Europe Deputy Bureau Chief
LORNE COOK Agence France Presse (AFP) Defence Correspondent
JOHN CRADDOCK Supreme Headquarters Allied Powers Supreme Allied Commander Europe Europe (SHAPE) (SACEUR)
DERIK CROTTS Supreme Headquarters Allied Powers Public Information Chief Europe (SHAPE)
STEWART ELDON Delegation of the United Kingdom to Ambassador NATO
JULIAN HALE Rapporteur
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A Press Dinner organised by the SDA in cooperation with the Hanns Seidel Stiftung
JESSICA HENDERSON Security & Defence Agenda (SDA) Senior Manager
MARK JOHN Reuters Senior Correspondent, EU and NATO
KAREL KOVANDA European Commission: Directorate Deputy Director General, CFSP, Multilat- General for External Relations eral Relations and North America, East Asia, Australia, New Zealand, EEA, EFTA
DAVID LEAKEY European Union Military Staff Director General (EUMS)
RICARDO MARTINEZ DE RITUERTO El País Defence, Foreign Affairs Correspondent
KEVAN MCHALE Supreme Headquarters Allied Pow- Chief of Plans, Exercises and Outreach ers Europe (SHAPE)
GILES MERRITT Security & Defence Agenda (SDA) Director
ANGELA OSTLENDER Hanns-Seidel-Stiftun Programme Manager
MARKUS RUSS Hanns-Seidel-Stiftung Director, Brussels Office
HERMAN SCHAPER Delegation of the Netherlands to Ambassador NATO
FIDELIUS SCHMID Financial Times Deutschland Reporter
EMIL VALDELIN Security & Defence Agenda (SDA) Project Manager
GEOFFREY VAN ORDEN European Parliament Member
ROB WATSON BBC World Service Defence Correspondent Page 17
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The Scholarship Organization promotes the develop- Former German Federal President Roman Herzog once said ment of scholars. Further activities pursued by this De- that "education towards democracy" was the "permanent partment are media politics and the promotion of young and real responsibility of political foundations". He stated journalists. The primary mission is to offer young, up-and- that this education helped "citizens of an open society to coming university and college graduates specific support participate in the developmental process of a democracy and promotion. with as much knowledge as possible". The Institute for International Contact and Coop- The Hanns-Seidel-Stiftung (HSS) is an independent Ger- eration promotes international cooperation in develop- man political institution, yet espouses ideals close to those ment projects, concentrating on vocational training, the of the Christian Social Union (CSU) and currently fulfils its promotion of administrative systems, consultation and mission in a true Christian spirit in no less than 57 countries advice for parties and governments, activities for the im- the world over. In all, 255 employees (plus 350 local project provement of the infrastructure, etc. staff) work for the Foundation in Germany and abroad. They are spread out among the Headquarters in Munich, about The Hanns-Seidel-Foundation is a registered association 90 development projects, the Banz Monastery and Wildbad dedicated exclusively and directly to public interests. The Kreuth Training Centers, the Munich Conference Centre, mission and commitment of the Association is and the Liaison Bureaus in Berlin, Brussels, Moscow, and Washington. • to promote the democratic and civic education of the German population on the basis of Christian values, The HSS has been committed to the fundamental philoso- phy of “Serving Democracy, Peace and Development” since • to promote education, popular and vocational train- 1967. The various activities of the Foundation are split up ing including the support of students, in particular by into four Departments. giving individuals with appropriate talents and char- acter values access to scientific and research training, Focusing on international relations, the Liaison Bureau with its offices in Washington, Brussels and Moscow • to promote science, in particular by conducting sci- hold international conferences, bilateral expert meetings, entific studies and research, lectures and discussion events. The three Liaison Offices held a total of 54 events in 2006 both in Germany and • to promote an international spirit and communication abroad, with 4,775 participants from 87 countries. among nations as well as the unification of Europe, in particular by inviting foreign groups and supporting The Academy for Politics and Contemporary History travel abroad, conducts and offers practice-oriented political advisory ser- vices. Fundamental data and information for political deci- • to promote cultural causes, in particular by support- sions are compiled on a scientific basis, just as the Academy ing the upkeep and maintenance of works of culture organizes conferences and publishes various studies, reports and supporting the care and preservation of monu- and other publications. ments,
The Institute for Adult Civic Education promotes de- • to promote foreign aid and development. mocratic and civic education among broad groups of the population. The primary objective is to increase and pro- mote the political involvement of citizens. The Hanns-Seidel-Foundation was founded in 1967 and is named after Dr. Hanns Seidel (October 12th,1901– August
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