Building State and Security in Afghanistan Edited by Wolfgang Danspeckgruber with Robert P. Finn With Contributions by President Hamid Karzai and Prince Hans Adam II. of Liechtenstein Building State and Security in Afghanistan The Liechtenstein Institute on Self-Determination at Princeton University The Liechtenstein Institute on Self-Determination at Princeton University’s Woodrow Wil- son School of Public and International Affairs supports teaching, research, publication, and negotiation about issues pertaining to the state, self-determination, self-governance, sover- eignty, security and boundaries with particular consideration of socio-cultural, ethnic, reli- gious issues, and related legal, diplomatic, economic, strategic, and environmental matters involving state as well as non-state actors. The Institute was established in 2000 through the generosity of H.S.H. Prince Hans Adam II. of Liechtenstein. LISD-WWS Study Series Wolfgang Danspeckgruber, Editor-in-Chief Beth English, Executive Editor The LISD-WWS Study Series is a joint venture of the Liechtenstein Institute on Self-Deter- mination (LISD) and Princeton University’s Woodrow Wilson School of Public and Inter- national Affairs (WWS). Each volume in the series presents fresh scholarship and timely analysis by academics and policy practitioners on a range of pressing international issues. Content is based on work prepared for various meetings of the Liechtenstein Colloquium on European and International Affairs, a private diplomacy forum held under the auspices of LISD and the House of Liechtenstein. Building State and Security in Afghanistan Edited by Wolfgang Danspeckgruber with Robert P. Finn Woodrow Wilson School of Public and International Affairs • Princeton University © 2007 by the Woodrow Wilson School of Public and International Affairs Princeton University Princeton, New Jersey 08544 All rights reserved. No part of this publication may be reproduced or transmitted in any form or by any means without permission in writing from the Liechtenstein Institute on Self-Determination at Princeton University. Liechtenstein Institute on Self-Determination at Princeton University Woodrow Wilson School of Public and International Affairs Princeton University Princeton, New Jersey 08544 USA Telephone: 609.258.6200 Facsimile: 609.258.5196 Electronic Mail: [email protected] On the Web: www.princeton.edu/lisd Designed and Produced by the Office of External Affairs, Woodrow Wilson School of Public and International Affairs Printed in the United States of America ISBN: 0-9773544-4 This book was made possible in part by a grant from the Carnegie Corporation of New York. The statements made and views expressed are solely the responsibility of the contributing authors. Contents List of Acronyms ix Acknowledgements xi Foreword Afghanistan as a Land Bridge Country Hamid Karzai, President of the Islamic Republic of Afghanistan xiv Preface Can Afghanistan Become the Switzerland of Asia? Prince Hans Adam II. of Liechtenstein xvii Introduction Wolfgang Danspeckgruber and Robert P. Finn xxi Part I: State-Building 1. Building State and Security William Maley 3 2. Security in Afghanistan A Historical Perspective Marvin G. Weinbaum 19 3. Constitutional Engineering and Democratic Stability The Debate Surrounding the Crafting of Political Institutions in Afghanistan Andrew Reynolds 36 4. A Third Branch? (Re)establishing the Judicial System in Afghanistan J Alexander Thier 56 Part II: Centralization versus Decentralization 5. Centralization versus Decentralization The Importance of Sequencing and Timing Rani D. Mullen 75 6. State-Building at the Subnational Level in Afghanistan A Missed Opportunity Andrew Wilder and Sarah Lister 85 7. Civil Society and State-Building in Afghanistan Susanne Schmeidl 102 viii Contents 8. The Afghan Economy Wolfgang Danspeckgruber and Robert P. Finn 128 9. The Failure to Bridge the Security Gap The PRT Plan, 2002-2004 Barbara J. Stapleton 147 10. Keeping the Peace without Peacekeepers Eckart Schiewek 167 Part III: The International Perspective 11. The Afghanistan-Pakistan Border and Afghanistan’s Long-Term Stability Amin Saikal 215 12. Islam and the Transformative Power of Tradition Anna Seleny 227 Epilogue Wolfgang Danspeckgruber 241 Appendix I Timeline of Key Events 248 Appendix II UN Security Council Resolutions Related to Afghanistan 267 Bibliography 273 Contributors 290 Index 297 List of Acronyms ACSF Afghan Civil Society Forum AFN Afghani (National Currency of Afghanistan) AIA Afghan Interim Authority AIHRC Afghan Independent Human Rights Commission AMF Afghan Militia Forces ANA Afghan National Army ANDS Afghanistan National Development Strategy ANBP Afghan New Beginnings Program ANP Afghan National Police APM Antipersonnel Landmine ASP Afghanistan Stabilization Program ATA Afghan Transitional Authority CAT Civil Affairs Team CDC Community Development Council CERP Commanders Emergency Response Program (US Department of Defense) CLJ Constitutional Loya Jirga CMOC Civil Military Operations Center CTC Counter-Terrorism Committee CTED Counter-Terrorism Committee Executive Directorate CVR Civil Voter Registry DDR Disarmament, Demobilization and Reintegration Process DFID Department for International Development (United Kingdom) DIAG Disbandment of Illegal Armed Groups Program DoD Department of Defense DSRSG Deputy Special Representative of the Secretary-General ELJ Emergency Loya Jirga ESF Economic Support Fund (US Department of State) FCO Foreign and Commonwealth Office (United Kingdom) GTZ Deutsche Gesellschaft für Technische Zusammenarbeit (German Agency for Technical Cooperation) iANDS interim Afghanistan National Development Strategy ICRC International Committee of the Red Cross IDLO International Development Law Organization IDP Internally Displaced Persons IEC Independent Election Commission IFES International Foundation for Election Systems ISAF International Security Assistance Force x Acronyms ISI Inter-Services Intelligence Directorate JCMB Joint Coordination and Monitoring Board JEMB Joint Electoral Management Body JRC Judicial Reform Commission KFOR NATO Kosovo Force KhAD Khadamat-e Etela’at-e Dawlati LOTFA Law and Order Trust Fund for Afghanistan MOD Ministry of Defense MOI Ministry of Interior MSF Médecins sans Frontières NCCTs Non-Cooperative Countries and Territories NPP National Priority Program NSP National Solidarity Program OECD Organization for Economic Cooperation and Development OHDACA Overseas Humanitarian Disaster and Civic Aid ONUC United Nations Operation in the Congo OSCE Organization for Security and Cooperation in Europe PRO Provincial Reconstruction Office PRT Provincial Reconstruction Team PSF Provincial Stabilization Fund QIP Quick Impact Project RDZ Regional Development Zone SNTV Single Non-Transferable Vote SRSG Special Representative of the Secretary-General SSR Security Sector Reform Process UNAMA United Nations Assistance Mission in Afghanistan UNAMIR United Nations Assistance Mission for Rwanda UNDP United Nations Development Programme UNFICYP United Nations Peacekeeping Force in Cyprus UNHCR United Nations High Commissioner for Refugees UNICEF United Nations Children’s Fund UNIFSA United National Islamic Front for the Salvation of Afghanistan UNODC United Nations Office on Drugs and Crime UNSMA United Nations Special Mission to Afghanistan UNTAC United Nations Transitional Authority in Cambodia USAID United States Agency for International Development USG United States Government Acknowledgements When I visited Kabul for the first time 2003 I was impressed with the immaculately clean and beautifully colored burquas, bustling construction activity and the work intensely go- ing on all around me in a society which had suffered so much for so long. I experienced the serenity and the historical foundation of a highly cultured society when I had the oppor- tunity to call on King Zahir Shah in his palace. I was impressed by his profound devotion to the future of his country and fellow citizens, and with his interest in connecting with a Euro-American visitor and learning about possible projects which could ameliorate the economic situation in Afghanistan and link it more firmly to Europe and America. When I left Kabul, activity in construction, agriculture, small business and industry was visible ev- erywhere. Still, the horrendous destruction and the absence of any basic form of infrastruc- ture for water or power supply was also plainly clear. I saw countless invalids and injured wherever I visited and saw many a widow with young children clearly without a father. This juxtaposition of progress and depravation was all experienced amidst a stunning mountain- ous topography, which challenges the Alps in their beauty. Fate was such that I was in the region dealing with Kashmir and visiting Islamabad when the two Buddhas of Bamiyan were destroyed, turning into rubble icons of cultural history which had no comparison. The political shockwaves which ran through Islamabad and its international community at that moment will be forever with me. It became clear in those days of March 2001 that somehow something dramatic was developing. Six months later the world experienced global terrorism at its worst and Afghanistan’s fate would experi- ence yet another momentous development. On 9 September assassins targeted and killed Ahmed Shah Massoud, on 11 September terrorists attacked the United States, and weeks later the international Coalition operation “Enduring Freedom” based upon Article V of NATO and with UN Security Council