War in Afghanistan: Strategy, Operations, and Issues for Congress Catherine Dale Specialist in International Security March 9, 2011 Congressional Research Service 7-5700 www.crs.gov R40156 CRS Report for Congress Prepared for Members and Committees of Congress War in Afghanistan: Strategy, Operations, and Issues for Congress Summary In the aftermath of the terrorist attacks of September 11, 2001, the United States launched and led military operations in Afghanistan in order to end the ability of the Taliban regime to provide safe haven to al Qaeda and to put a stop to al Qaeda’s use of the territory of Afghanistan as a base of operations for terrorist activities. Many observers argue that in succeeding years, as U.S. and world attention shifted sharply to the war in Iraq, the Afghan war became the “other war” and suffered from neglect. The Obama Administration, however, has made the war in Afghanistan a higher priority, by giving it early attention, regularly conducting strategy reviews, and making significant additional commitments of civilian and military resources. By early 2011, senior leaders, including the Commander of NATO’s International Security Assistance Force (ISAF), General David Petraeus, were pointing to discrete progress on the ground, though noting that such progress was still “fragile and reversible.” In late 2010, NATO and the Afghan government agreed to pursue a key medium-term goal: the transition of lead responsibility for security to Afghans throughout the country by the end of 2014. The U.S. government has stated its intention to begin drawing down some U.S. forces from Afghanistan in July 2011, and also to maintain a long-term strategic partnership with Afghanistan beyond 2014. Strategic vision for Afghanistan is still, many would argue, a work in progress. President Karzai has consistently stressed the theme of “Afghan leadership, Afghan ownership.” President Obama has consistently stressed the core goals of the United States: to disrupt, dismantle, and defeat al- Qaeda in Afghanistan and Pakistan, and to prevent their return. Yet for the U.S. government, fundamental issues remain unresolved. These include • determining the minimum essential conditions required for Afghanistan itself to be able to sustain stability with relatively limited international support; • defining the appropriate combination of U.S. efforts, together with other international resources, over time, required to achieve those minimum conditions; and • balancing U.S. national security interests in Afghanistan and the region against other imperatives, in a constrained fiscal environment. This report, which will be updated as events warrant, describes and analyzes • the key players in the war in Afghanistan; • the strategic outlooks of the Afghan government, the U.S. government, and NATO; • the threats to the security and stability of the Afghan state and its people; • the major facets of the current effort: security, governance and anti-corruption, development, reconciliation and reintegration, and transition; • mechanisms in place to measure progress; and • critical issues that Congress may wish to consider further. Congressional Research Service War in Afghanistan: Strategy, Operations, and Issues for Congress Contents Overview ....................................................................................................................................1 Major Stakeholders ...............................................................................................................1 Current Dynamics .................................................................................................................1 Key Debates..........................................................................................................................2 Origins of the War.......................................................................................................................3 Prelude to War ......................................................................................................................3 Major Combat Operations .....................................................................................................4 Post-Taliban Developments.........................................................................................................5 Bonn Process ........................................................................................................................5 The Afghan People in Post-Taliban Afghanistan ....................................................................5 Strategy ......................................................................................................................................6 Afghan Strategy....................................................................................................................6 U.S. Strategy.........................................................................................................................7 Post-9/11 Aims................................................................................................................7 Bush Administration Strategy..........................................................................................7 Obama Administration Strategy.......................................................................................8 COMISAF Initial Assessment .........................................................................................8 Fall 2009 Strategy Review ..............................................................................................9 December 2010 Afghanistan Pakistan Annual Review...................................................10 U.S. Strategy in 2011 .................................................................................................... 11 NATO Strategy ...................................................................................................................11 The Threat ................................................................................................................................12 The Insurgencies .................................................................................................................13 Current Security Conditions ..........................................................................................13 Taliban..........................................................................................................................14 Haqqani Network..........................................................................................................15 Hezb-i-Islami Gulbuddin (HiG).....................................................................................15 “Criminal Patronage Networks” ..........................................................................................16 Kabul Bank and National-Level Institutions ..................................................................16 Sub-National-Level Powerbrokers.................................................................................17 Ahmed Wali Karzai.................................................................................................17 General Abdul Razziq .............................................................................................18 Governor Gul Agha Sherzai ....................................................................................18 International Community Practices......................................................................................19 Structure of the International Effort...........................................................................................20 Leadership of the Effort ......................................................................................................20 Lead Nation Model .......................................................................................................20 Afghanistan Compact and UNAMA..............................................................................20 Kabul Process ...............................................................................................................21 NATO.................................................................................................................................22 ISAF Creation and Legal Basis for Presence .................................................................22 ISAF Mandate...............................................................................................................22 ISAF Geographic Expansion through Stages .................................................................23 ISAF Organization........................................................................................................23 ISAF Joint Command (IJC).....................................................................................23 Congressional Research Service War in Afghanistan: Strategy, Operations, and Issues for Congress NATO Training Mission-Afghanistan (NTM-A)......................................................24 Regional Commands...............................................................................................24 ISAF Troop Contributors...............................................................................................24 National Caveats...........................................................................................................25 Provincial Reconstruction Teams (PRTs).......................................................................25 NATO Senior Civilian