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Summary

The mission of the North Atlantic Treaty Organization (NATO) in Afghanistan is a test of the alliance's political will and military capabilities. The allies intended to create a "new" NATO, able to go beyond the European theater and combat new threats such as terrorism and the proliferation of weapons of mass destruction. Afghanistan is NATO's first "out-of-area" mission beyond Europe. The purpose of the mission is the stabilization and reconstruction of Afghanistan. The mission is a difficult one because it must take place while combat operations against Taliban insurgents continue. Recent assessments of the current situation in Afghanistan point to a rise in the overall level of violence due to increased Taliban military activity and an increase in terrorist-related activities including, suicide bombings. U.N. Security Council resolutions govern NATO's responsibilities. The NATOled International Security Assistance Force (ISAF) faces formidable obstacles: shoring up a weak government in Kabul; using military capabilities in a distant country with rugged terrain; and rebuilding a country devastated by war and troubled by a resilient narcotics trade. NATO's mission statement lays out the essential elements of the task of stabilizing and rebuilding the country: train the Afghan army, police, and judiciary; support the government in counter-narcotics efforts; develop a market infrastructure; and suppress the Taliban. ISAF has proceeded in four stages to extend its area of responsibility over the whole of Afghanistan. ISAF's principal mechanism to rebuild Afghanistan is the Provincial Reconstruction Team (PRT). PRTs, composed of military and civilian officials, are charged with extending the reach of the Afghan government by improving governance and rebuilding the economy. There are significant differences in how individual NATO governments run their PRTs. Although the allies agree on ISAF's mission, they differ on how to accomplish it. Increasing turmoil in Pakistan has complicated the effort to prevent the Taliban from infiltrating Afghanistan. Some allies do not want their forces to engage in combat operations. None, except the United States, wants to engage directly in destruction of poppy fields in countering the drug trade. The 110th Congress has supported most Administration policies in Afghanistan, but wishes to see a more coherent plan for integration, stabilization, and reconstruction operations. In June 2008, Congress appropriated $31 billion for the conflict in Afghanistan. Most observers predict that ISAF's efforts to stabilize Afghanistan will require five years or more. An exit strategy has multiple components: suppressing the Taliban; rebuilding the economy; and cajoling Afghan leaders to improve governance. U.S. leadership in Afghanistan may well affect NATO's cohesiveness, credibility and its future. This report will be updated as needed. See also CRS Report RL30588, Afghanistan: Post-War Governance, Security, and U.S. Policy, by Kenneth Katzman.

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• RL33627

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