Logo using multiply on 27 layers Accord ISSUE Editors an international review of peace initiatives Logo drawn as seperate elements with overlaps Anna Larson and coloured seperately Alexander Ramsbotham 2018 Incremental peace in Afghanistan 27 Accord ISSUE an international review of peace initiatives Incremental peace in Afghanistan June 2018 // Editors Anna Larson and Alexander Ramsbotham Accord // ISSUE 27 // www.c-r.org Published by Conciliation Resources, to inform and strengthen peace processes worldwide by documenting and analysing the lessons of peacebuilding Published by Acknowledgements Conciliation Resources We would like to give special thanks to Professor Burghley Yard, 106 Burghley Road Michael Semple for his extensive expert advice London, NW5 1AL and substantive editorial input and support for www.c-r.org this Accord publication. Professor Semple's experience, insights and ideas have been Telephone +44 (0)207 359 7728 integral to conceptual development and practical Fax +44 (0)207 359 4081 implementation throughout this Accord project. Email [email protected] We would also like to thank the following: Charity registered in England and Wales Ali Wardak, Heela Najibullah, Christine Bell, (1055436). Company limited by guarantee Charlotte Morris, Scott Worden, Sippi Azerbaijani registered in England and Wales (03196482). Moghaddam, Jonathan Cohen, Ed Hadley, Chris Sell, Jawed Nader, Noah Coburn, Erika Tarzi, Editors Kate Clark, Emma Leslie, Veronika Tesarova, Anna Larson and Alexander Ramsbotham Beatrice Liese, Timor Sharan, Sayed Abdullah Ahmadi, Niamatullah Ibrahimi, Mohammed Executive Director Munir Salamzai, Ali Hassan Fahimi, Shaharzad Jonathan Cohen Akbar, Ahmad Shuja, Malais Daud, Rahmatullah Director of Accord Hashemi, Sayed Ali Faisal, Lotfullah Najafizada, Alexander Ramsbotham Amir Hussain Hussaini, Tahir Qadiri, Mohammed Hussain Hasrat, Wali Naeemi, Hamish Nixon, Director of Policy and Learning Francesc Vendrell, Tom Rodwell, Behrouz Teresa Dumasy Afagh, Hameed Hakimi, Jenny Norton, Daud Senior Advisor, Peace and Transition Processes Qarisadah, Marika Theros, Elizabeth Winter, Zahbia Yousuf Christopher Langton, Kathryn Tomlinson and Andrew Nethercott. Senior Advisor, Gender and Peacebuilding Sophia Close Special thank you to Veronika Tesarova for her invaluable role throughout the project Policy, Accord and Learning Officer and publication. Felix Colchester Opinions expressed by all contributors are Accord, Policy and Practice Assistant their own. Veronika Tesarova This report is an output of the Political Copyedited by Aaron Griffiths Settlements Research Programme, funded by Designed and typeset by Soapbox UK aid from the Department for International www.soapbox.co.uk Development for the benefit of developing countries. 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(Dari proverb) View of a village in Nuristan province, Afghanistan // © MohibNoor/iStock ISSN 2397-5598 ISBN 978-1-905805-26-6 Contents Acronyms 4 Foreword 5 Introduction 7 Section 1: Looking back – lessons from Afghanistan’s past 13 Afghanistan’s political history 15 Lessons from Bonn 20 Transformative politics in 20th century Afghanistan 25 President Najibullah and the National Reconciliation Policy 30 Taliban history of war and peace in Afghanistan 35 Peace in Afghanistan: a northern, non-Pashtun perspective 41 Section 2: Looking forward – peace initiatives 46 Elusive settlement in Afghanistan 48 Perspectives of leaders of five Taliban caucuses – interviews 56 Women’s participation in Afghan peace talks 63 Integrating a military and peace strategy – interview with Amb. Douglas Lute 68 Statement by the Taliban Political Office in Qatar 72 Brokering local settlements in Helmand 74 Local peacebuilding in Afghanistan 80 International support for a political process 85 Section 3: Looking forward – institutional change 91 Inclusive politics as a path to peace 93 Local perspectives on peace and elections – Herat Province 102 On elections and peace: Dr Habiba Sarabi – interview 104 Local perspectives on peace and elections – Nangarhar Province 106 On peace and political reform: Younus Qanooni – interview 109 Local perspectives on peace and elections – Balkh Province 113 Theses on peacemaking in Afghanistan 115 Local perspectives on peace and elections – Ghazni Province 119 Human rights, security and Afghanistan’s peace process 122 On war, peace and transition: Gulbuddin Hekmatyar – interview 128 Institutionalising inclusive and sustainable justice in Afghanistan 132 Conclusion 138 Chronology 143 Glossary 147 Profiles 148 Key texts 152 References 154 Accord series 156 Incremental peace in Afghanistan // 3 Acronyms ACJC – Anti-Corruption Justice Centre ISK – Islamic State of Khorasan ADR – Alternative dispute resolution KHAD – State Intelligence Agency – Khadamat-e Aetla’at-e Dawlati AIBA – Afghanistan Independent Bar Association MoJ – Ministry of Justice AIHRC – Afghanistan Independent Human Rights Commission MoWA – Ministry of Women’s Affairs ANA – Afghan National Army NATO – North Atlantic Treaty Organisation ANP – Afghan National Police NDS – National Directorate of Security ANSF – Afghan National Security Forces NRP – National Reconciliation Policy BAAG – British & Irish Agencies Afghanistan Group NUG – National Unity Government BRI – Belt and Road Initiative OEF – Operation Enduring Freedom CDC – Community Development Council PDPA – People’s Democratic Party of Afghanistan DDA – District Development Assembly PRT – Provincial Reconstruction Team DDR – Disarmament, Demobilisation and Reintegration SERC – Special Electoral Reform Commission HIG – Hezb-i Islami-ye Gulbuddin SNTV – Single Non-Transferable Vote HRSU – Human Rights Support Unit SSR – Security Sector Reform HRU – Human Rights Unit UN5PPP – UN five-Point Peace Plan IEC – Independent Electoral Commission UNDP – United Nations Development Programme INLTC – Independent National Legal Training Centre USIP – United States Institute of Peace ISAF – International Security Assistance Force USV – Upper Sangin Valley ISI – Inter-Services Intelligence 64° 66° 68° 70° 72° 74° CHINA AFGHANISTAN UZBEKISTAN TAJIKISTAN JAWZJAN KUNDUZ TURKMENISTAN BALKH TAKHAR BADAKHSHAN 36° 36° SAMANGAN FARYAB BAGHLAN AFGHANISTAN ISLAMIC REPUBLIC OF IRAN SARIPUL Jammu BADGHIS PANJSIER NURISTAN BAMYAN N and PARWAN KAPISA A KUNAR M H G Kashmir A WARDAK Kabul L 34° NANGARHAR 34° HERAT GHOR DAY LOGAR KUNDI Islamabad PAKTYA GHAZNI KHOST PAKISTAN URUZGAN FARAH PAKTIKA 32° ZABUL 32° National capital NIMROZ KANDAHAR International boundary Provincial boundary HELMAND INDIA 0 50 100 150 200 250 km 30° 30° Map: United Nations 0 50 100 150 mi 62° 64° 66° 68° 70° 72° 74° 4 // Accord // ISSUE 27 Foreword Mohammad Kareem Khalili His Excellency Mohammad Kareem Khalili is Chair of the High Peace Council of Afghanistan, having previously served as Vice-President of Afghanistan from 2002–14 during both the Interim Administration and then under elected Mohammad Kareem Khalili. President Hamid Karzai. The country known as ‘Afghanistan’ has been burning in Of course, questions remain as to the conditions under the fire of war and violence for nearly forty years now. which peace can be achieved. But despite these questions, These destructive wars have inflicted all kinds of injury Afghanistan’s political class is confident that peace on every aspect of the country. From the widespread and offers the best way to escape the current crisis without largescale slaughter of our people, to the destruction of precipitating a new one. housing and economic infrastructure, to the degrading of the natural environment, to the traumatised psychology Undoubtedly, peace in Afghanistan is intimately linked to of the war-affected. From the violation of the rights and international peace. The problem of conflict in Afghanistan freedoms of women and children, to the crumbling of the is a manifestation of contemporary global conflict. rule of law. And from the emergence of all kinds of negative Therefore, progress towards peace in Afghanistan will not phenomena in the domain of social relations, to the damage just save the residents of this country from the evils of war, to the nation’s cultural life. These are all consequences it will also contribute to the solution of a global problem. which the continuous wars have inflicted on the people Accordingly, while the peace process in Afghanistan is of Afghanistan. Therefore, to extricate the country from Afghan-led and Afghan-owned, it requires the clear and this horrendous, bitter state requires a transformational committed support from the countries of the region and approach. This approach is peace and understanding! at the international level. Only peace offers a sustainable and fundamental solution to the Afghan crisis. In 2001, the international community achieved a rare unity of action with regard to Afghanistan. It was thus able to The necessity of achieving peace is one issue on which there transform positively the lives of millions of our people and is no difference of opinion. Over the past ten months the