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Espacio Para Respirar: El Humanitarismo En Afganistán (2001-2008) Luis Elizondo PP02/08

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Espacio Para Respirar: El Humanitarismo En Afganistán (2001-2008) Luis Elizondo PP02/08 Espacio para respirar: El humanitarismo en Afganistán (2001-2008) Luis Elizondo PP02/08 1 2 Resumen Los terribles atentados del 11 de septiembre significaron la apertura de una nueva etapa de la asistencia in- ternacional en Afganistán. Pese a que la situación en el país refleja la simultaneidad de esfuerzos de recons- trucción “pos-bélica”, lucha contra el terrorismo, contrainsurgencia, consolidación de la paz y lucha antidro- gas; hoy por hoy, su característica definitoria es la insurgencia y la contrainsurgencia. Esto, en una región compleja desde el punto de vista geopolítico. Llevar acabo la acción humanitaria en el complejo escenario del conflicto afgano no es cosa fácil. Sobre este espacio coexisten y chocan varias agendas y actores, donde el humanitarismo corre el peligro de servir los intereses de otras agendas. En este trabajo de investigación se argumenta que están en juego los principios humanitarios, sustento de la legitimidad y credibilidad de los actores humanitarios, y en consecuencia, el acceso a los más necesitados. La convivencia sobre el terreno afgano de la acción humanitaria con la consolidación de la paz y la llamada “Guerra Global contra el Terror”, ha colocado al humanitarismo en una posición vulnerable y en riesgo de ser subordinado a imperativos metahumanitarios, principalmente de índole militar y de la política interna- cional. Este trabajo busca brindar argumentos sobre la urgente necesidad de un espacio humanitario inde- pendiente, basado en los principios humanitarios, en el contexto afgano. Abstract The abominable acts of terrorism of September 11 led to the opening of a new period of international assis- tance in Afghanistan. Staged in a geopolitically complicated regional setting, Afghanistan’s current situation accepts no simple definitions, for it reflects the simultaneous efforts of “post-conflict” reconstruction, coun- terterrorism, counterinsurgency, peacebuilding and anti-drug campaigns. Nevertheless, recent developments place the insurgency and the counterinsurgency as the conflict’s defining traits. Hence, providing humanitar- ian action in Afghanistan’s complex conflict system is not an easy task. The afghan setting is characterized by the coexistence and clash of several agendas and their correspondent actors, where humanitarianism runs the risk of serving the interests of other agendas. In this paper I argue that the humanitarian principles, source of humanitarian legitimacy and credibility, and consequently key to accede to those most in need are at stake. The cohabitation of humanitarian action, peacebuilding efforts and the Global War on Terror, have placed humanitarian action in a vulnerable posi- tion and at risk of being subordinated to metahumanitarian imperatives, namely international political and military imperatives. This paper contends that the afghan context reflects the urgent need for a principle- based humanitarian space. Palabras clave: Afganistán, Acción Humanitaria, Principios Humanitarios, Guerra Global contra el Te- rror, Seguridad, Desarrollo Key words: Afghanistan, Humanitarian Action, Humanitarian Principles, Global War on Terror, Security, Development. Luis Elizondo Investigador asociado del Instituto Complutense de Estudios Internacionales (ICEI), y en la actualidad prepara un docto- rado en Relaciones Internacionales en la Universidad Complutense de Madrid. Este documento es fruto del período de investigación del programa de Doctorado en Relaciones Internacionales, Unión Europea y Globalización de la Facultad de Ciencias Políticas y Sociología de la Universidad Complutense de Madrid, y del programa de investigación sobre seguridad y desarrollo realizado con apoyo de la Dirección General de Planificación y Evaluación de Políticas de Desarro- llo de la Secretaría de Estado de Cooperación Internacional (SECI), en el marco del Convenio SECI-Instituto Compluten- se de Estudios Internacionales. La realización del presente trabajo se benefició de la orientación académica y los comen- tarios de José Antonio Sanahuja, a quien el autor desea agradecer su apoyo. Instituto Complutense de Estudios Internacionales, Universidad Complutense de Madrid. Campus de Somosaguas, Finca Mas Ferre. 28223, Pozuelo de Alarcón, Madrid, España. © Luis Elizondo ISBN: 978-84-691-6663-5 Depósito legal: El ICEI no comparte necesariamente las opiniones expresadas en este trabajo, que son de exclusiva responsabilidad de sus autores/as. 3 4 Índice Introducción…………………………………………………………………………………..11 PRIMERA PARTE ANÁLISIS DEL CONFLICTO AFGANO (2001-2008)…………………………..………12 1.1 La “Guerra Global contra el Terror” y Afganistán…………………………………………..12 1.2 La Conferencia de Bonn: la apertura de una nueva etapa de ayuda en el marco de la guerra global contra el terror………………………...………………..….12 1.3 El marco para el desarrollo: la Estrategia de Desarrollo Nacional de Afganistán y el “Pacto por Afganistán”............................................................................14 1.4 Valoración de la contribución internacional 2001-2008……………………………………14 1.5 De narco-economía a narco-Estado………………………………………………………….17 1.6 La presencia militar internacional……………………………………………………………18 1.7 En conflicto afgano en la región……………………………………………………………...20 1.7.1. La Línea Durand: de “puerta trasera” a “puente” del conflicto…………………….23 SEGUNDA PARTE LA ACCIÓN HUMANITARIA EN AFGANISTÁN………………...…………………………24 2.1 La acción humanitaria, principios y espacio………………………………………………...24 2.2 La acción humanitaria en Afganistán: 1979 -2008...............................................................25 2.3 El nuevo paradigma de intervención y sus implicaciones en el espacio humanitario afgano…………………………………………………...…..................27 2.3.1. La ayuda humanitaria en Afganistán y su estado de contracción…...……………...29 2.4 Las necesidades humanitarias de Afganistán………………………………...………………31 2.5 Seguridad y Ayuda…………………………………………………......……………………..32 2.5.1 La Cooperación Cívico-Militar.................................................................................32 2.5.2 Las “operaciones militares basadas en efectos” y Afganistán...................................34 2.5.3 Los Equipos de Reconstrucción Provincial (PRT)...................................................35 2.5.3.1 El modelo PRT y sus variantes sobre el terreno...........................................37 2.5.3.2 Los “proyectos de impacto rápido” (QIP)....................................................39 2.5.4. La ayuda ante el desafío de la inseguridad.................................................................39 2.5.5. La protección de la población civil............................................................................41 2.5.6. La violencia contra los trabajadores humanitarios y los cooperantes………............43 5 6 2.6 El espacio humanitario en Afganistán: entre los principios humanitarios, la estabilización y la lucha contra el terrorismo………………………………...…………...45 2.7 La coordinación de la ayuda: “misión integrada” y pluralidad de actores…….……………48 2.7.1. Las misiones integradas……………………………………………………….……...48 2.7.2. La Misión de Asistencia de las Naciones Unidas para Afganistán (UNAMA)...............................................................................................50 2.7.3. La coordinación desde el Gobierno afgano …………......……………………..…….53 2.7.4. Las organizaciones no gubernamentales…………………………………..…………54 3. CONCLUSIONES........................................................................................................................56 Anexo I Los distintos alcances de la acción humanitaria, la ayuda humanitaria, la ayuda de emergencia, la protección y el socorro..................................................60 Anexo II Los 23 principios de la Iniciativa Buenas Prácticas de Donación Humanitaria (GHD).................................................................................................61 Anexo III Principios y conceptos de referencia del Comité Permanente entre Organismos (IASC) para la coordinación cívico-militar en emergencias complejas.................................................................................................................64 Anexo IV Lista de personas entrevistadas................................................................................66 Referencias bibliográficas..................................................................................................................67 Artículos periodísticos………………………………………………….……………….……74 7 Índice de siglas AACA Autoridad Afgana para la Coordinación de la Asistencia / Afghanistan Assistance Co- ordination Authority ACBAR Agencia Coordinadora de Socorro para Afganistán / Agency Coordinating Body for Afg- han Relief ACNUR Alto Comisionado de Naciones Unidas para los Refugiados AECID Agencia Española de Cooperación Internacional para el Desarrollo AIA Autoridad Interina Afgana / Afghan Interim Authority ANCB Oficina Afgana Coordinadora de ONG / Afghan NGOs Coordination Bureau ANDS Estrategia de Desarrollo de Afganistán / Afghanistan National Development Strategy ANSO Oficina de Seguridad de ONG en Afganistán / Afghanistan NGO Security Office AOD Ayuda Oficial al Desarrollo ARTF Fideicomiso para la Reconstrución de Afganistán / Afghanistan Reconstruction Trust Fund ATA Autoridad Transitoria de Afganistán /Afghan Transitional Authority CIA Agencia Central de Inteligencia / Central Inteligence Agency CICR Comité Internacional de la Cruz Roja CIMIC Cooperación Cívico-Militar / Civil-Military Cooperation CMCoord Coordinación Militar-Humanitaria Civil / Civil
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