Афганистан CRS

Afghanistan: Post-Taliban Governance, Security, and U.S. Policy

TAPI (Turkmenistan-Afghanistan-Pakistan-India) Gas Pipeline Project.

Another long-stalled major energy project appears to be gaining momentum. During 1996-1998, the Clinton Administration supported proposed natural gas and oil pipelines through western Afghanistan as an incentive for the warring factions to cooperate. A consortium led by Los Angeles-based Unocal Corporation proposed a $7.5 billion Central Asia Gas Pipeline that would originate in southern Turkmenistan and pass through Afghanistan to Pakistan, with possible extensions into India.90 The deterioration in U.S.-Taliban relations after 1998 suspended hopes for the pipeline projects. In May 2002, the leaders of Turkmenistan, Afghanistan, and Pakistan agreed to revive the project and sponsors signed a series of preliminary agreements at an inaugural meeting in July 2002, in Turkmenistan. In late 2011, the Asian Development Bank agreed to finance the project, removing what had been a major hurdle. On July 8, 2014,

Turkmenistan, Afghanistan, Pakistan, and India signed an operational agreement on the pipeline under which Pakistan and India would each get 42% of the gas transported and Afghanistan would get the remainder. India is a large customer for natural gas and its participation is considered crucial to making the venture commercially viable.91 U.S. officials view this project as a superior alternative to a proposed gas pipeline from Iran to India, transiting Pakistan.

Trade Promotion/Reconstruction Opportunity Zones

The key to U.S. economic strategy, as exemplified by the New Silk Road strategy, is to encourage Afghanistan’s trade relationships. The United States is doing so by promoting regional economic integration, discussed above, as well as through bilateral economic agreements with Afghanistan. A key to the strategy was accomplished in 2011 when Afghanistan and Pakistan finalized provisions to implement their 2010 transit trade agreement. To facilitate Afghanistan’s ability to increase trade, USAID is funding a five-year project ($63 million total during 2010-2014) to simplify the customs clearance process. This includes new import procedures that have reduced the time needed for imports to clear customs by 45%. On December 13, 2004, the 148 countries of the World Trade Organization voted to start membership talks with Afghanistan.

Earlier, in September 2004, the United States and Afghanistan signed a bilateral trade and investment framework agreement (TIFA), and most of Afghanistan’s exports are eligible for duty free treatment under the enhanced Generalized System of Preferences (GSP) program. The Administration economic strategy report of December 2011 says the Administration is reaching out to Afghan exporters and U.S. importers of Afghan products to make increased use of the GSP program. The TIFA is seen as a prelude to a broader and more complex bilateral free trade agreement, but negotiations on an FTA have not yet begun.

Another initiative supported by the United States is the establishment of joint Afghan-Pakistani “Reconstruction Opportunity Zones” (ROZs) which would be modeled after “Qualified Industrial Zones” run by Israel and Jordan in which goods produced in the zones receive duty free treatment for import into the United States. Bills in the 110th Congress, S. 2776 and H.R. 6387, would have authorized the President to proclaim duty-free treatment for imports from ROZs to be designated

90Other participants in the Unocal consortium include Delta of Saudi Arabia, Hyundai of South Korea, Crescent Steel of Pakistan, Itochu Corporation and INPEX of Japan, and the government of Turkmenistan. Some accounts say Russia’s Gazprom would probably receive a stake in the project. Nezavisimaya Gazeta (Moscow), October 30, 1997, p. 3.

91“Operational Accord on Tapi Gas Pipeline Signed.” Dawn.com, July 18, 2014.

Afghanistan: Post-Taliban Governance, Security, and U.S. Policy

by the President. In the 111th Congress, a version of these bills was introduced (S. 496 and H.R. 1318). President Obama specifically endorsed passage of these bills in his March 2009 strategy announcement. H.R. 1318 was incorporated into H.R. 1886, a major Pakistan aid appropriation that passed by the House on June 11, 2009, and was then appended to H.R. 2410. However, the version of the major Pakistan aid bill that became law (S. 1707, P.L. 111-73) did not authorize ROZs.

Table 7. Major Reporting Requirements

Several provisions require Administration reports on numerous aspects of U.S. strategy, assistance, and related issues.

•P.L. 108-458, The Afghanistan Freedom Support Act Amendments required, through the end of FY2010, an overarching annual report on U.S. strategy in Afghanistan. Other reporting requirements expired, including required reports (1) on long-term U.S. strategy and progress of reconstruction; (2) on how U.S. assistance is being used; (3) on U.S. efforts to persuade other countries to participate in Afghan peacekeeping; and (4) a joint State and DOD report on U.S. counternarcotics efforts in Afghanistan.

•P.L. 110-181 (Section 1230), FY2008 Defense Authorization Act requires a quarterly DOD report on the security situation in Afghanistan; the first was submitted in June 2008. It was required by that law through FY2011. Section 1231 required a report on the Afghan National Security Forces through the end of FY2010. The FY2012 National Defense Authorization Act (P.L. 112-81) extended the reporting requirement—the reports entitled “Progress Toward Security and Stability in Afghanistan” cover a six month period—until the end of FY2014.

•Section 1229 of the same law requires the quarterly report of the Special Inspector General for Afghanistan Reconstruction (SIGAR).

•P.L. 111-8 (Omnibus Appropriation, explanatory statement) required a State Department report on the use of funds to address the needs of Afghan women and girls (submitted by September 30, 2009).

•P.L. 111-32, FY2009 Supplemental Appropriation (Section 1116), required a White House report, by the time of the FY2011 budget submission, on whether Afghanistan and Pakistan are cooperating with U.S. policy sufficiently to warrant a continuation of Administration policy toward both countries, as well as efforts by these governments to curb corruption, their efforts to develop a counterinsurgency strategy, the level of political consensus in the two countries to confront security challenges, and U.S. government efforts to achieve these objectives. The report was released with a date of September 30, 2010.

•The same law (Section 1117) required a report, by September 23, 2009, on metrics to be used to assess progress on Afghanistan and Pakistan strategy. A progress report measured against those metrics is to be submitted by March 30, 2010, and every six months thereafter, until the end of FY2011.

•Section 1228 of the FY2010 National Defense Authorization Act (P.L. 111-84) required a report, within 120 days, on the Afghan Provincial Protection Program and other local security initiatives. Section 1235 authorized a DOD-funded study of U.S. force levels needed for eastern and southern Afghanistan, and Section 1226 required a Comptroller General report on the U.S. “campaign plan” for the Afghanistan (and Iraq) effort.

•Sections 1212-1226 of the FY2013 National Defense Authorization Act (H.R. 4310, P.L. 112-239) contains several reporting or congressional notification requirements on Afghanistan, on issues such as women’s rights, an independent assessment of the performance of the ANSF, negotiations on the bilateral security agreement, the political reconciliation and insurgent reintegration process, the U.S. campaign plan, insider attacks, any changes to U.S. troop levels, and other issues. These sections also contain authorities on use of some DOD funds in Afghanistan, such as CERP and funding for the reintegration process.

Sources: CIA, The World Factbook; various press and U.S. government official testimony; IMF and World Bank estimates.

Afghanistan: Post-Taliban Governance, Security, and U.S. Policy

Table 9. Major Non-U.S. Pledges for Afghanistan 2002-2012

Sources: Afghanistan Ministry of Finance: Development Cooperation Report, 2010; various U.S. government reports, including Defense Department reports on Afghanistan stability. Figure for Japan includes $5 billion pledged in 2008 (over five years) to fund Afghan National Police salaries, and funds pledged at July 8, 2012, Tokyo donors conference. Figures for Germany included $550 million pledged (over four years) at that meeting.

Note: Table includes donors of over $100 million only.

Afghanistan: Post-Taliban Governance, Security, and U.S. Policy

Table 10. U.S.Assistance to Afghanistan, FY1978-FY1998

($ in millions)

Source: Department of State.

a.Includes $3 million for demining and $1.2 million for counternarcotics.

b.Includes $3.3 million in projects targeted for Afghan women and girls, $7 million in earthquake relief aid, 100,000 tons of 416B wheat worth about $15 million, $2 million for demining, and $1.54 for counternarcotics.

Afghanistan: Post-Taliban Governance, Security, and U.S. Policy

Table 11. U.S.Assistance to Afghanistan, FY1999-FY2001

($ in millions)

Afghanistan: Post-Taliban Governance, Security, and U.S. Policy

Table 13.Total Obligations for Major Programs: FY2001-FY2011

($ in millions. Source: USAID and CRS calculations)

Afghanistan: Post-Taliban Governance, Security, and U.S. Policy

Table 14. NATO/ISAF Contributing Nations

(approximate as of November 2014, prior to the end of the ISAF mission on December 31, 2014)

Total Listed ISAF: 32,000 (approximate)

Sources: ISAF “Placemat,” press reports; and country announcements.

Notes: *ISAF figures reflect Canada combat troop pullout in July-August 2011. Some countries might be contributing additional forces not under ISAF command.

Note: RC = Regional Command.