However, the inequitable distribution of resources continued, making it easier for the insurgency to destabilize previously stable provinces and districts, Eide noted. There was still a serious lack of reporting on how and where development resources were spent, which complicated planning and coordination. Hopefully, the ongoing gap assessment in key sectors would lead donors to provide more information about their spending and to a redistribution that would provide greater resources for under-funded provinces. More effective and coordinated development efforts would make it possible to meet the concerns of the Afghan people and their legitimate demands for greater economic and social justice. That would also enhance the people's confidence in their own Government and in the international community.
Efforts to ensure the Afghan people's continued support for the international community's military engagement must also be strengthened, Eide said, noting that the political costs of recent mistakes were simply disproportionate in military gains. However, the United Nations claims that the clear majority of civilian casualties were caused by the insurgency, not the result of tragic mistakes, but of deliberate policy. "I am not saying all this in order to present a rosy picture of the overall situation in Afghanistan," Eide said, stressing that the ongoing conflict seriously undermined the prospects for progress. The number of security incidents had risen beyond the 1,000 mark for the first time in May, having increased by 43 per cent over the first four months of 2009 compared to the same period in 2008. There were more incidents in parts of the country which had, up to now, been stable.
It was also clear that the fight against widespread corruption was still only in its early stages, Eide continued. Institutions were still weak, not only in human capacity, but in physical infrastructure, especially at the sub-national level. Eide reported that six provinces still lacked offices for their governors, only half the district governors had an office building, and 288 lacked a vehicle. That impacted tremendously on their ability to administer the country and deliver services. "We must also have a perspective that goes beyond the elections," Eide said, recalling the clear priorities set in Paris and at The Hague conference.
Emphasizing the importance of a common post-election strategy, Eide said there was a need for a vision that would provide a clearer direction and guide efforts in support of a new Government; a development strategy that would make it possible to move forward in a more disciplined and coordinated way, and allow for greater Afghan ownership; and a security strategy that would accelerate the build-up of Afghan security forces and their role in ensuring stability. Finally, there was a need for a political strategy that would include a credible and inclusive peace process, respect the rights of all Afghans, and bring the various parts of society together. A credible and successful peace process could only take place with a Government that enjoyed the people's support and had confidence in itself. The same was true of the international presence.
Turning to the United Nations Assistance Mission in Afghanistan (UNAMA), Eide said expectations were high for its multifaceted and ambitious mandate, adding that, while he was grateful for the additional resources received last year, the situation had evolved, even during the six months since the adoption of the 2009 budget. With rising expectations and new opportunities emerging on the ground, there was a need for more resources to fulfill the donor-coordination mandate; to meet new opportunities in capacity- and institution-building; and to expand across the country, as requested in Security Council resolutions.
While UNAMA did not itself bring financial resources, Eide said, a country-wide presence of the Mission could serve as a magnet for other civilian organizations and gradually draw development and governance efforts "out of the military context and into the civilian context where they belong." That could help facilitate an all-inclusive political process through an improved civilian outreach program. Eide, therefore, appealed to the Council to support the Mission in its urgent need for additional resources.
In the mandate given UNAMA in March, the Council had asked it to develop benchmarks for its activities, Eide recalled. That work was under way and would be finalized in time for the Secretary-General's next report in September. It was not an easy task, since the Mission's efforts formed an integral part of the efforts of so many others. It was also difficult to establish the time lines and means to measure progress in political processes, especially in a context as unpredictable and complex as Afghanistan's. Nevertheless, consultations with partners were under way, and Eide expressed confidence that the UNAMA would be able to present the Council with a set of meaningful benchmarks by September.
Zahir Tanin, representing Afghanistan, stated that his country was nearing a "new beginning," recalled that five years ago, Afghanistan had held its first elections after decades of bloody power struggles. Despite continuing terrorist activities by the Taliban and Al-Qaida, the country had made enormous progress since 2001, and its people were ready to go to the polls a second time. "This, in itself, is a huge success, and it reflects the enduring Afghan support for the stabilization process and the value of partnership between Afghanistan and the international community," said Tanin.
The elections were less than three months away and between now and August, Afghanistan and the wider international community must act to ensure the transparency and fairness of the electoral process, Tanin said. There was a lot at stake and the Afghan people knew that the ballot was the only feasible way to build on the positive progress of the past. To do so, the elections must be credible and legitimate. The results should unite the Afghan people, strengthen Afghan institutions and provide momentum for ongoing stabilization efforts.
Turning to specifics about the campaign, Tanin said the rules of the game had been defined by law. The Government and relevant bodies were working to ensure that the candidates received security, transportation and access to the media. For the actual elections, the essential priority was to ensure security so that people from all over the country would be able to vote. To that end, the Afghan Army and national police would provide the main security at some 7,000 polling stations throughout the country, supported by a strengthened international force. In addition, the Independent Electoral Commission, the Electoral Complaints Commission and the Media Commission would be responsible for providing information, logistics and oversight, guaranteeing access to media for candidates and responding to the concerns of the public.
Tanin stressed that, while the elections had deservedly been at the center of attention for months, the international community must remember that the vote was part of a larger effort to promote change and ensure stability far into the future. The coming months should reinvigorate the partnership between the Afghan Government and the international community. "We should use the elections to add momentum to the strategic shifts that began this year and unify our approach, around [...] the need to strengthen Afghan institutions and make them sustainable, and the need to be increasingly responsive to the growing expectations of the Afghan people, who want to see a tangible improvement in their lives," said Tanin.
With some welcome strategic reviews by the United States and the North Atlantic Treaty Organization (NATO), Tanin said, the past months had provided a timely opportunity to review achievements and rethink strategies in different areas. Afghanistan had grown from a country devoid of society, Government and infrastructure to one with thousands of miles of roads, millions of children in school, and accessible health care for some 85 per cent of the population. At the same time, daunting challenges remained to be adequately addressed, most importantly insecurity, which was increasing rather than ebbing, with civilians continuing disproportionately to bear the costs.
The Taliban had shown an increasing disregard for human life, intentionally targeting civilians, particularly women, children and humanitarian staff, and using populated areas to stage attacks on international forces, Tanin said. As the international force increased in strength during the summer months, and insecurity worsened in parts of the country ahead of the elections, everyone must be careful to avoid increasing the loss of civilian life. Afghanistan applauded recent steps taken by NATO and the United States to address those concerns, as well as the recently announced rules of engagement and improved guidelines for the use of air bombardment.
Efforts to meet development goals remained fragmented, Tanin said, adding that poverty had increased and unemployment was a major problem. Governance and the rule of law remained weak and, alongside corruption, required sustained attention from both the government and the international community. Humanitarian and development aid should be better coordinated and more accountable. Resources must be funneled towards building government capacity because it needed lasting expansion of its presence rather than the temporary expansion of the foreign presence. The "civilian surge" would be the backbone of the national effort to address many of those challenges, bolstering support for national development priorities and programs in key sectors. It would also help improve service delivery in provincial areas.
While the international community and the United Nations had an essential role to play in the coming months and years, Afghanistan also needed stronger cooperation with its neighbors, Tanin said. "As has been widely recognized, this conflict is not limited to the borders of Afghanistan, but involves the entire region, and endangers people all over the world," Tanin stressed. Afghanistan's enemies were not local, but regional. They found sanctuary and support outside the country and a comprehensive regional approach would be needed to combat them. The Government had recently begun moving towards a more positive regional interaction with Pakistan and Turkey.
Afghanistan had the opportunity to make significant progress if it maintained its new momentum and focus over the coming months, Tanin said. That would require broad and consistent international engagement. If the Government could ensure transparent and open elections, increase security for the Afghan population, improve coordination and aid effectiveness, strengthen institutions and constructively address the regional dimensions of the situation, Tanin said, "we can clear a space on which to build a strong, sustainable Afghanistan."
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