Practices and Lessons from Afghanistan

152 Pages·2009·2.23 MB·English

Operational Effectiveness and UN Resolution 1325 –
Practices and Lessons from Afghanistan
LOUISE OLSSON & JOhAN TEJPAR (EDS.)
BIRgITh ANDREASSEN, JOSEPh hOENEN, SyNNE hOLAN,
SOPhIE KESSELAAR, BJøRg SKOTNES, JOhANNA VALENIUS
�
����������������������
�������������������
RO_ BZ_Logo _2_301U_pos op wit_en.eps RO_ BZ_Logo _2 7462C_pos op wit_en.eps
Logo ‘derden’ voor gebruik in colofon met Logo ‘derden’ voor gebruik in colofon met
ongestreken papiersoorten ( UNCOATED ) op witte achtergrond gestreken papiersoorten ( COATED ) op witte achtergrond
Kleur is gebaseerd op PMS 301U Kleur is gebaseerd op PMS 7462C
Bij gebruik in full colour offsetdruk Bij gebruik in full colour offsetdruk
omzetten naar: C100 M54 Y4 K19 omzetten naar: C100 M45 Y6 K28
RO_ BZ_Logo _2_301U_pos op kleur_en.eps RO_ BZ_Logo _2 7462C_pos op kleur_en.eps
Logo ‘derden’ voor gebruik in colofon met Logo ‘derden’ voor gebruik in colofon met
FOI, Swedish Defence Research Agency, is a mainly assoignngmeesnttr-efuknedne dp aapgeienrcsyo uonrdteern t h( eU MNiCniOstAryT oEfD D )e foepnc gee. Tkhlee ucrodree aacctihvtiteiersg raoren rdesearch, megtheostdr eankde nte pchanpoielorgsyo orten ( COATED ) op witte achtergrond
development, as well as studies conducted in the interests of Swedish defence and the safety and security of society. The organisation employs approximately 1000 per-
Kleur is gebaseerd op PMS 301U Kleur is gebaseerd op PMS 7462C
sonnel of whom about 800 are scientists. This makes FOI Sweden’s largest research institute. FOI gives its customers access to leading-edge expertise in a large number
of fields such as security policy studies, defence and seBcuirji tgy ereblartuedik a ninal yfsuelsl, cthoel aosusers osmffesnet todf rvuarkious types of threat, systems for control and mBainj aggeembernuti kof icnri sfeus,l l colour offsetdruk
protection against and management of hazardous subsotamnczees,t ItTe sne cnuraitay ra:n d tChe1 p0o0te n Mtia5l o4ff e Yre4d b yK n1e9w sensors. omzetten naar: C100 M45 Y6 K28
FOI
Defence Research Agency Phone: [phone] www.foi.se
FOI-R--2760--SE User report Defence Analysis
Defence Analysis Fax: [phone]
SE-164 90 Stockholm ISSN 1650-1942 May 2009
Louise Olsson & Johan Tejpar (eds.)
Birgith Andreassen, Joseph Hoenen, Synne
Holan, Sophie Kesselaar, Bjørg Skotnes &
Johanna Valenius
Operational Effectiveness and
UN Resolution 1325 –
Practices and Lessons from
Afghanistan

Cover photos:
PRT Tarin Kowt: The District Chief of Deh Rawod, sitting next to a female
Mission Team Deputy Commander, at a meeting in the village Dorshanak to
intervene in a local dispute between two village elders. Photo by: Captain Steffie
Groothedde.
PRT Mazar-e Sharif: The Swedish PRT Commander and Gender Field Adviser.
Photo by Louise Olsson.
PRT Meymaneh: A girls’ school outside Meymaneh. The teaching facilities
consisted of tents. Photo by Synne Holan.
Kabul: Meeting the Director of Training, his staff and the highest ranked female
military officer in ANA at the Afghan Ministry of Defence. Photo by Johan Tejpar.
FOI-R--2760--SE

Title Operational Effectiveness and UN Resolution 1325 –
Practices and Lessons from Afghanistan
Rapportnr/Report no FOI-R--2760--SE
Rapporttyp Användarrapport
Report Type
Sidor/Pages 151 p
Månad/Month Maj/May
Utgivningsår/Year 2009
ISSN ISSN 1650-1942
Kund/Customer Försvarsdepartementet

Operational Analysis and Support
Kompetenskloss
Extra kompetenskloss
Projektnr/Project no A 12014
Godkänd av/Approved by Maria Lignell Jakobsson

FOI, Totalförsvarets Forskningsinstitut FOI, Swedish Defence Research Agency
Avdelningen för Försvarsanalys Division of Defence Analysis

164 90 Stockholm SE-164 90 Stockholm
FOI-R--2760--SE
Sammanfattning
Den 12 december 2007 beslutade det Nordatlantiska rådet att utveckla gemensamma
koncept och policydirektiv avseende FN Resolution 1325. Som del i detta arbete har
åtta experter från fyra länder gjort denna studie om hur Resolution 1325 har integrerats
i NATO Provincial Reconstruction Teams (PRT) i Afghanistan. I studien utvecklas ett
ramverk som används för att analysera arbetet med Resolution 1325 i fem fallstudier av
lika många besökta PRT. Dessa är det Nederländernas PRT i Tarin Kowt, Italiens PRT
i Herat, Nya Zeelands PRT i Bamyan, Norges PRT i Meymaneh och Sveriges PRT i
Mazar-e Sharif.
Studiens analytiska ramverk bygger på en modell där Resolution 1325 innehåll bryts
ner i representation (manligt och kvinnligt deltagande) och integration (hur
resolutionen används för att uppnå önskad effekt). Dessa teman analyseras i
dimensionerna internt (hur missioner och operationer är organiserade) och externt (hur
missionerna eller operationerna bemöter situationen i det geografiska ansvarsområdet
för att uppnå önskat resultat).
I arbetet med att analysera arbetsområdena framkom att de olika PRT hade skiftande
kunskaper såväl om Resolution 1325 som om kvinnors och mäns olika
säkerhetssituation och behov. Det framgick att PRT i studien såg hur Resolution 1325
kunde vara användbar i deras dagliga arbete, bland annat genom att ha: fler kvinnliga
soldater för att öka kontaktytan och därmed få mer underrättelse (Meymaneh),
experthjälp i planeringen av operationer (Mazar-e Sharif), kunskap om hur man kan
hantera könsrelaterat våld (Bamyan), bättre kunskap om kvinnors behov i CIMIC-
projekt (Tarin Kowt), och effektivare ’force protection’ (Herat). I studien visar det sig
också att ledarskap och expertfunktioner är centrala för att genomdriva förändringar
mot fullständig integrering av Resolution 1325.
Tre områden som krävs för att integrera Resolution 1325 i NATO operationer
identifieras slutligen. Dessa är 1) vikten av att använda en allomfattande strategi för att
integrera Resolution 1325; 2) vikten av att hålla ledarskapet ansvariga för att
integrering av resolutionen genomdrivs; samt att 3) skapa expertfunktioner för att lyfta
upp och effektivisera integreringen. Dessa tre råd beskrivs mer djuplodande i
expertgruppens policyrekommendationer som överlämnades och presenterades för
NATO och Euroatlantiska partnerskapsrådet i maj 2009.

Nyckelord: FN Resolution 1325, NATO, ISAF, PRT, Afghanistan, gender, operationell
effektivitet
3
FOI-R--2760--SE
Summary
On December 12, 2007, the North Atlantic Council decided to develop common
concepts and a Policy Directive on UN Resolution 1325. As part of this process, eight
independent experts from four countries have conducted this study, identifying best
practices and lessons learned from the implementation of Resolution 1325 in NATO’s
Provincial Reconstruction Teams (PRTs) in Afghanistan. Practices and lessons relate
both to effectiveness and the process to integrate Resolution 1325 in operations. An
analytical framework has been developed and applied on five different PRTs; the
Dutch PRT in Tarin Kowt, the Italian PRT in Herat, The New Zealand PRT in
Bamyan, the Norwegian PRT in Meymaneh and the Swedish PRT in Mazar-e Sharif.
The analytical framework is based on a model in which the content of Resolution 1325
is broken down into representation (male and female participation) and integration (the
use of the content of Resolution 1325 in the process to achieve a desired output). These
themes are analyzed internally (how NATO Operations are organized) and externally
(how Operations address the situation in the area of responsibility to obtain the desired
output). Using this model, a set of work areas are identified and analyzed.
When analyzing the work areas in the PRTs, it showed that the awareness of
Resolution 1325 and of women’s and men’s different security situation and needs
varied. However, PRT personnel agreed that a substantial part of the Resolution’s
content is, or could be, helpful in their day-to-day operations. Examples given include:
having more female soldiers to better reach the local population and collect intelligence
(Meymaneh), having expert support in the planning of operations (Mazar-e Sharif),
better handling issues of gender-based violence (Bamyan), better addressing women in
CIMIC-projects (Tarin Kowt) and having women to better handle force protection
issues (Herat). It was also apparent that the leadership, supported by expert functions,
plays a crucial part to drive change towards a complete integration of Resolution 1325.
To fully integrate Resolution 1325 in NATO Operations, three principle actions are
identified: These are 1) use a comprehensive strategy to integrate Resolution 1325, 2)
hold commanders accountable for progress, and 3) establish expert functions to
enhance integration. These actions are specified in the expert group’s policy
recommendations which were handed to NATO and the Euro-Atlantic Partnership
Council in May, 2009.

Keywords: UN Resolution 1325, NATO, ISAF, Afghanistan, PRT, gender, operational
effectiveness, women and men

4
FOI-R--2760--SE

Contents
About the Authors.................................................................11
Acknowledgements...............................................................12
Acronyms and Abbreviations...............................................14
1 Introduction...................................................................15
By Louise Olsson and Johan Tejpar
1.1 Contribution of the Report...............................................................16
1.2 Structure of the Report....................................................................17
2 How to Address Resolution 1325: The Framework...19
By Louise Olsson and Johanna Valenius
2.1 Point of Departure...........................................................................19
2.2 Representation................................................................................21
2.2.1 Internal Representation...............................................................21
2.2.2 External Representation.............................................................21
2.3 Integration.......................................................................................21
2.3.1 Internal Integration......................................................................22
2.3.2 External Integration.....................................................................22
2.4 Staff Functions that Drive Change..................................................22
2.4.1 Operation Leadership.................................................................22
2.4.2 Expert Functions.........................................................................22
3 How to Study Resolution 1325: Method and Design .24
By Louise Olsson
4 Background: Afghanistan and NATO..........................26
By Johan Tejpar, Birgith Andreassen, Synne Holan and Joseph Hoenen
4.1 Afghanistan.....................................................................................26
4.1.1 Women and the Conflict..............................................................27
4.2 ISAF: NATO in Afghanistan............................................................28
4.2.1 The Evolution of ISAF.................................................................29
4.2.2 ISAF: The PRT Concept.............................................................30
4.3 ISAF and Resolution 1325..............................................................31
4.3.1 Access to Female Military Personnel..........................................32
List of Interviewees, Kabul............................................................................34
5
FOI-R--2760--SE
5 The Dutch PRT in Tarin Kowt.......................................36
By Sophie Kesselaar and Joseph Hoenen
5.1 National Context.............................................................................36
5.2 Situation in the PRT Area...............................................................37
5.3 PRT Mandate and Organization.....................................................38
5.4 Representation and Resolution 1325.............................................39
5.4.1 Internal Representation..............................................................40
5.4.2 External Representation.............................................................43
5.5 Integration and Resolution 1325....................................................45
5.5.1 Internal Integration.....................................................................45
5.5.2 External Integration at the PRT HQ level...................................50
5.5.3 External Integration at the PRT Tactical Level...........................52
5.6 Conclusions....................................................................................54
5.7 Suggestions....................................................................................55
List of Interviewees.......................................................................................56
6 The Italian PRT in Herat................................................58
By Louise Olsson and Johanna Valenius
6.1 National Context.............................................................................58
6.2 Situation in the PRT Area...............................................................58
6.3 PRT Mandate and Organization.....................................................60
6.4 Representation and Resolution 1325.............................................61
6.4.1 Internal Representation..............................................................61
6.4.2 External Representation.............................................................62
6.5 Integrating Resolution 1325...........................................................64
6.5.1 Internal Integration.....................................................................64
6.5.2 External Integration....................................................................65
6.6 Conclusions....................................................................................67
6.7 Suggestions....................................................................................68
List of Interviewees.......................................................................................68
7 The New Zealand PRT in Bamyan................................70
By Birgith Andreassen, Synne Holan and Bjørg Skotnes
7.1 National Context.............................................................................70
7.2 Situation in the PRT Area...............................................................70
7.3 PRT Mandate and Organization.....................................................72
7.4 Representation and Resolution 1325.............................................73
6
FOI-R--2760--SE
7.4.1 Internal Representation...............................................................73
7.4.2 External Representation.............................................................75
7.5 Integration and Resolution 1325.....................................................76
7.5.1 Internal Integration......................................................................76
7.5.2 External Integration at the PRT HQ Level..................................78
7.5.3 External Integration at the PRT Tactical Level...........................79
7.6 Conclusions.....................................................................................81
7.7 Suggestions....................................................................................82
List of Interviewees........................................................................................82
8 The Norwegian PRT in Meymaneh..............................84
By Birgith Andreassen, Synne Holan and Bjørg Skotnes
8.1 National Context..............................................................................84
8.2 Situation in the PRT Area...............................................................84
8.3 PRT Mandate and Organization.....................................................85
8.4 Representation and Resolution 1325.............................................87
8.4.1 Internal Representation...............................................................87
8.4.2 External Representation.............................................................88
8.5 Integration and Resolution 1325.....................................................90
8.5.1 Internal Integration......................................................................90
8.5.2 External Integration.....................................................................92
8.6 Conclusions.....................................................................................95
8.7 Suggestions....................................................................................96
List of Interviewees........................................................................................97
9 The Swedish PRT in Mazar-e Sharif............................98
By Louise Olsson and Johan Tejpar
9.1 National Context..............................................................................98
9.2 Situation in the PRT Area...............................................................98
9.3 PRT Mandate and Organization.....................................................99
9.4 Representation and Resolution 1325...........................................100
9.4.1 Internal Representation.............................................................100
9.4.2 External Representation...........................................................102
9.5 Integration and Resolution 1325...................................................104
9.5.1 Internal Integration....................................................................104
9.5.2 External Integration at the PRT HQ Level................................108
9.5.3 External Integration at the PRT Tactical Level.........................110
9.6 Conclusions...................................................................................112
7
FOI-R--2760--SE
9.7 Suggestions..................................................................................113
List of Interviewees.....................................................................................113
10 How to Implement Resolution 1325: The Analysis...115
By Louise Olsson and Johan Tejpar
10.1 Overview......................................................................................115
10.2 Practice and Lessons for Effectiveness.......................................117
10.3 Representation.............................................................................118
10.3.1 Internal Representation............................................................118
10.3.2 External Representation...........................................................119
10.4 Integration....................................................................................121
10.4.1 Internal Integration...................................................................121
10.4.2 External Integration..................................................................122
10.5 Staff Functions That Drive Change..............................................124
10.5.1 Operation Leadership: The Commander.................................124
10.5.2 Expert Functions: Gender Advisers and Gender Focal Points 125
10.6 Conclusions..................................................................................126
11 Actions to Undertake and the Way Forward.............128
Bibliography.........................................................................129
Annex 1: Policy Recommendations...................................133
Annex 2: Interview Structure..............................................144
Interviewee Selection..................................................................................144
Interview Questions....................................................................................144
PRT Interview Questions: HQ Level...........................................................144
PRT Interview Questions: Tactical Level....................................................145
Interview Questions: External Parties (Ministries/ IOs/ NGOs)..................146
Annex 3: NATO....................................................................148
NATO Organization....................................................................................148
NATO Resolution 1325 Developments.......................................................149
NATO’s Justification for Gender Mainstreaming........................................149
NATO & Women.........................................................................................149
Annex 4: UN Resolution 1325 (2000) .................................150

8
FOI-R--2760--SE
List of Figures, Tables and Boxes
Figure 1: Work areas of NATO Operations relating to Resolution 1325 20
Box 1: Facts about Afghanistan 26
Table 1: Women in the International Military Staff in NATO 33
Table 2: Share of female soldiers in NATO countries’ Armed Forces 33
Figure 2: Overview of the examined PRTs 116

9