IS THE NEIGHBOURHOOD SET TO GET EVEN MORE
DANGEROUS
?
INDRANI BAGCHI DIPLOMATIC EDITOR
In December, 2007, Hamid Karzai, president of Afghanistan, threw out two Britons Michael Semple and Mervyn Patterson for allegedly bribing Taliban leaders in Musa Qala, Helmand, where British troops were fighting not always to advantage. Karzai, apparently enraged that the British were paying off the Taliban behind his back and demanding that these leaders be accommodated in the Afghan government, refused to comply, and in the face of British displeasure, expelled them.
Semple, said security officials in Afghanistan, is probably best described as the Afghanistan-Taliban brains trust for the UKs MI6, its external intelligence arm. In a re-run of the 19th Century Great Game adventurers, Semple has been a prime advocate of reintegration and reconciliation with the Taliban as a key strategy to win the war in Afghanistan.
His background is equally interesting Semples father was a general in the British army and his wife Yamimas father, General Mirdha, a buddy of former Pakistani president Yahya Khan, putting him on an inside track to military-intelligence decision makers in Pakistan. The idea of wooing over softer Taliban leaders and quelling Pashtun anger isnt new or novel. Today, it is largely Semples doctrine of reconciliation thats driving the present British-led initiative to sift the good Taliban from the bad, and bring the good into the tent. Its a line that Pakistan has pushed, leveraging the Inter-Services Intelligence (ISI) and armys deep contacts with the Taliban. Islamabad is peddling a promise, once betrayed in 1996 when the group overran Kabul, that the Taliban could be persuaded to control violence and create a backdrop that would allow the West to make a face-saving exit from Afghanistan. Alongside, the Taliban could be persuaded to be a replacement for Karzai, despised by Pakistan and slowly disgraced in Washington.
LONDON MOVE STUNS INDIA
The Afghanistan conference in London last week was a shocker for Indian mandarins who had hoped to muscle in and get a larger say in Afghan policy given the money and effort New Delhi has put into the reconstruction efforts. But what happened was that India got blindsided by the British swallowing the Pakistani line that Islamabad could deliver peace by negotiating a deal with the Taliban. Shivshankar Menon, the new national security adviser, along with foreign secretary Nirupama Rao, is leading a massive review of Indias own ****** policy, which will determine not just Indias approach to Afghanistan, but also craft out a new policy of engagement with Pakistan. The announcement on Thursday of resumption of foreign secretary-level talks between New Delhi and Islamabad is a movement in that direction. (More of that, later in the story.)
Pakistan has pushed hard to remain in the drivers seat on Afghan policy. And, at least for now, it appears to be winning by hard-selling the line that without the involvement of the ISI, re-integration will remain a non-starter. That was evident first at the Istanbul ****** meeting leading up to the January 28 London conference, where Pakistan insisted India be kept out of the talks, and even a feeble attempt by Karzai to get India to the table was brushed off. India fretted and fumed impotently, but found itself completely dealt out of the game by Pakistan and the UK leading the charge, letting Karzai announce that he was going to draw his brothers back into the tent, and requesting the Saudis to mediate a reintegration and reconciliation with the Taliban.
This was only formalizing a process that had started in 2009, when the Taliban leadership had met with the Afghan government in the desert kingdom. These meetings broke the ice, even quietly blessed by US special envoy to ******, Richard Holbrooke. After the London conference, Saudi envoy to India Faisal Tarab told Crest in a carefully worded comment, We are ready to mediate with the Taliban, but we will not talk to terrorists. Saudi King Abdullah has just met Karzai and the outcome of that conversation could determine the success or otherwise of the proposed venture.
For India, global approval of the reconciliation process implies Pakistan, with its ISI and army, is likely to take a leading role. As Holbrooke told MK Narayanan, who was till recently NSA, and Nirupama Rao quietly during his last visit a couple of weeks ago, Pakistan has worked itself into a paranoia about Indias presence in Afghanistan; India would have to be removed from all decision-making on Afghanistan, they insisted. As London showed, Islamabad got its way.
For the US and UK, even though Indias assistance programme punches all the right buttons, India had to be sacrificed. Therefore, when British foreign secretary David Miliband was asked about Indias role, he hummed and hawed saying by and by. In London, India insisted on putting in phrases like the process should be Afghan-led and transparent and inclusive words to prevent the British and Pakistanis from controlling it. But as every diplomat understands, these are words than cannot, and indeed, will not be enforced.
The Pakistani demand has been succinctly laid out by Munir Akram, one of its top diplomats: Pakistans cooperation should be offered only in exchange for tangible and immediate US support for Pakistans national objectives: an end to Indian-Afghan interference in Baluchistan and FATA (Federally Administered Tribal Areas); a Kashmir solution; a military balance between Pakistan and India; parity with India on nuclear issues; transfer of equipment and technology for counter-terrorism; unconditional defense and economic assistance; free trade access.
KARZAI CORNERED?
Steve Coll in his book Ghost Wars recounts an event in the life of Hamid Karzai that bears repetition, because it might be instructive even today. In 1999, when his father, Abdul Karzai, a respected Pashtun tribal leader, made an overture to Mullah Omar against Al Qaida, he was gunned down by the Taliban leaders henchmen in Quetta, Pakistan.
The man is now being pushed into dealing with his fathers killers on an equal footing. A weakened, sullen Karzai has been battered into submission in a game where a lot of money ($500 million, $140 million of it in 2010) will be thrown at yet another attempt to win over the Taliban. US officials told Crest that while they maintain a healthy skepticism about flipping the Taliban, the US is not entirely dismissive of the fresh initiative either. This is as much to keep the British by their side as a reflection of the fact that there are serious doubts about the success of the US military strategy in Afghanistan.
The pragmatist that he is, Karzai has been half-way down this path before. In 2004, after Karzai won his first presidential election, he held out an olive branch to the Taliban, in a reconciliation exercise. This was called Tahkim-e-Solh (Strengthening Peace). Established in May, 2005, it tried giving Taliban not guilty of criminal activity a way to return to society. It did not work, because the process was imperfect, the reintegration did not happen in many cases, the payments were delayed or not made at all. Since most were neither provided security nor money, they soon returned to the Taliban, which was more lucrative. Officials say that will be fixed, because the US-UK duo will now control the funds. But Gen David Petraeus (whos credited with the success of the coalition forces in Iraq and now heads the US central command) is skeptical. If you have an area that is insecure to begin with, then it is difficult, though not undoable, to guarantee security for somebody who wants to come in from the cold.
CAN INDIA PROJECT HARD POWER?
Afghanistan and its future will prove to be Indias real test as a regional power. For the past decade, India has successfully turned itself into a huge presence and influencepeddler in Afghanistan
through its biggest-ever use of soft power: roads, hospitals, schools, scholarships, community development projects. Indias financial commitment in Afghanistan is upwards of
$1.2 billion.
Opinion polls put Indias popularity rating among Afghans at 71 per cent, in extreme contrast to only 2 per cent for Pakistan.
India has refrained from using hard power in Afghanistan, and, in many ways, the Indian presence is guaranteed by the US security role. As soft-power author, Harvard Universitys Joseph Nye says,
Achieving transformational objectives may require a combination of both hard and soft power. Soft power is only credible when it is matched by or surpassed by hard power.
India is paying the price, because, beyond a point, roads and dams dont help buy influence. As one top-level Afghan official said, wryly, We love India, but we fear Pakistan. That is a stronger emotion. Indias power projection in Afghanistan has been primarily by showing its goodness. Pakistan, on the other hand, negotiates with the world with a gun held to its own head. That, as India has discovered several times in its history, is far more persuasive.
For the moment, Pakistan has the upper hand, because both the UK and US need it more than ever. Pakistan is playing an adroit diplomatic game of chicken with the US and winning. Islamabad may be hopelessly dependent on Washingtons money, but that doesnt stop it from refusing to give visas to US officials, refusing money that comes with conditions. Pakistan has made it clear it will not stop supporting the Afghan Taliban; there is absolutely no attempt to tackle al Qaida; and Mullah Omars Quetta Shura functions unimpeded. In short, it holds veto power over whether the Obama surge succeeds in Afghanistan.
Washington, said an Indian official scornfully, is kowtowing to Pakistan just like they did to China.
Harsh perhaps, but this view is prevalent in the upper reaches of the Indian government to the extent that even the PM is believed to have remarked that if India and Pakistan have another fracas, Washington may not weigh in on Indias side.
According to high-level officials in New Delhi, a successful Taliban reintegration is another term for a Taliban takeover in Kabul. Look at Yemen and you see the Afghan future. If and when that happens, we may be looking at a pre-9/11 situation, said one of them.
Will Karzai survive?
Unlikely. But if he is to avoid the kind of fate that befell Afghanistans president Mohammed Najibullah who was tortured and strung up from a light post by the Taliban in Kabul in 1996 after the Soviets withdrew Karzai needs new and improved survival strategies. These must include working out deals with warlords tribal leaders who can help him survive the Taliban because despite everything, the average Afghan still prefers the present government to the harsh rules of the Taliban.
He cant look to the UK, US or Pakistan for help. He can look to India.
Will India step up to the table? This would entail getting our hands dirty. So far, India has shied away from a robust security role in Afghanistan.
A WIN-WIN FOR PAKISTAN? NOT SO SOON
It aint gonna be easy for the Pakistanis either. On the face of it, Pakistan faces the welcome prospect of putting its creation, the Taliban, back in power in Kabul, but the very fact that their leadership lives ensconced inside Pakistan means the Taliban have a stake in Pakistan as well. That has implications.
If the Taliban does assume a position of power in Kabul, it could be a windfall for some of the armed and dangerous groups Pakistan is fighting. And the connections are wellknown now. Holbrooke said that when he saw a video of the Jordanian double agent suicide bomber issue his final message with Hakimullah Mehsud of the Tehreek-e-Taliban Pakistan (TTP) sitting by his side, he thought it was shocking. It showed, if evidence was needed, that there are few lines between the different Taliban groups and al Qaida.
Peter Bergen, an authority on Qaida, explained this to the US Congress recently:
Taliban is much closer to the al Qaida today than it was eight years ago. Yes, there are local groups of the Taliban operating for purely local reasons, but the upper levels of the Taliban on both sides of the Afghan/ Pakistan border have morphed together ideologically and tactically with al Qaida.
Dreaded Taliban war veteran Jallaluddin Haqqani and other fighters of the Haqqani clan along the Afghan-Pak frontier operate with impunity on both sides of the Khyber. They have close ties with al Qaida, and with Pakistans ISI. Then, of course, there are stand-alone warlords like Gulbuddin Hekmatyar of Hizb-e-Islami who has changed sides so many times that Afghan watchers have lost count. He now maintains close ties with bin Laden and Co and US officials say he may be one of the first to be flipped!
So lets assume Pakistans dream comes true and the good Taliban join the Kabul government. Ahmed Rashid, a Taliban specialist and author of the acclaimed Descent Into Chaos, admits the Afghan Taliban have developed a degree of mistrust of the ISI, and grown closer to the TTP.
The chances that the Pakistan Taliban could use southern and eastern Afghanistan as their strategic depth against the Pakistan army would be unconscionably high, posing a potential security threat to Pakistan itself.
CAN TALIBAN TURN A NEW LEAF?
After some 1,200 attacks a month through all of 2009 (according to the UN), the Taliban are scenting victory in Afghanistan. A statement by Mullah Omar, rejecting the Karzai peace offer, was telling: They have tried in the past and are trying now to entangle our Muslim and brave people and their leadership, the Islamic Emirate. Some time, they announce that they will provide money, employment and opportunity to have a comfortable life abroad, for those mujahideen who agree to part ways with jihad. They think that mujahideen have taken up arms to gain money or grab power or were compelled to turn to arms. This is baseless and futile. Its a no-brainer that the Taliban leadership will not be bought. Why then, should anyone expect their rank and file to defect, when they havent for so long?
Besides, the Taliban leadership is unlikely to allow this kind of defection without adequate retribution in the past few years, Taliban have summarily killed people who have gone over to the government. They have systematically removed tribal chieftains opposed to the Taliban and al Qaida. Why should they stop now?
The West appears to have adopted a stance that its okay for the Taliban to flog women and stone heretics as long as they arent firing missiles at the West. The Taliban clearly cannot accept the Afghan constitution, because their faith remains the Islamic emirate, and Mullah Omar has said as much. That should be of concern for everyone, even the Taliban-eager British. Out of 7 million children currently attending school in Afghanistan, 40 per cent are girls. Over the past few years, there has been a fair degree of womens empowerment in that country. Progress will almost certainly be a casualty under Taliban rule.
But isnt there even a hint of a silver living? Ahmed Rashid points to Mullah Omars Eid message, repeated last week, that the Taliban would pose no threat to neighbouring countries as a sign of flexibility in the Taliban position.
WHAT DOES INDIA DO NOW?
While Pakistan is smoking victory in Afghanistan, it is also pushing for a greater focus on India-Pakistan relations. This argument has been persuasive in Washington since the beginning of the Obama administration, but is gathering currency now. Mike Mullen, chairman of the US joint chiefs of staff, said on Wednesday, South Asian security tensions and political dynamics significantly impact our objectives in Afghanistan and Pakistan. The longstanding animosity and mistrust between Pakistan and India complicates regional efforts.... While we acknowledge the sovereign right of India and Pakistan to pursue their own foreign policies, we must demonstrate our desire for continued and long-term partnership with each, and offer our help to improve confidence and understanding between them in a manner that builds longterm stability across the wider region of South Asia.
The argument within the UPA government is that if India doesnt take unilateral steps with Pakistan, it will inevitably get drawn into a trilateral effort with the US. Therefore, the government, even at the risk of being pilloried for succumbing to the US, is working to engage Pakistan across a spectrum of issues, starting off with home minister P Chidambarams visit to Islamabad end-February. Senior officials are certain this is unlikely to affect Pakistans support to terrorists or its position on India in Afghanistan. But not talking with Pakistan is raking in diminishing returns.
Not only has Pakistan won this round against India, it has won it big. Its even managed to impress upon the world Indias nonrelevance in Afghanistan. Will India take this on the chin and continue or, in the eventuality that the Taliban-Pakistan combine returns to power in Kabul, will it cut its losses and run?
At present there are two schools of thought in the Indian establishment. The
first says Afghanistan is a graveyard, and Indias had a good run there for the past decade.
The Hindu Kush was so named for a specific reason, said an official. But if the US security cover goes with the prospect of a Talibanised power structure in Kabul, India should reduce its presence, get its people out, and keep a modicum of influence to prevent the country from becoming a pre-9/11 anti-India space. Significantly, India hasnt taken on new infrastructure projects in Afghanistan lately.
But
another school says
India should not only maintain its presence but add different dimensions to it. This will define how India uses its power for peace in the neighbourhood, which will not happen by cut-and-run policies. Pakistan is in Afghanistan not because it wants to have a strong and stable country next door.
It is there because of its flawed doctrine of strategic depth against India. It stands to reason that Indias stakes in Afghanistan are vital precisely for that reason. Indias goal therefore should be to prevent a Taliban return.
But the bottomline is that India is on its own in Afghanistan. But Afghanistan will define Indian power more comprehensively than all its ships sailing in the Indian Ocean. So what should India do?
In off-the-record conversations with TOI-Crest, senior government officials said India should get a strong foothold in the Afghan administration. It needs to force situations where the Afghans will be able to take their own decisions and not be railroaded by the Pakistanis or the British. If the Afghans take their own decisions, thats good for us.
Second,
India needs to support Karzai through a period when he will surely be making existential deals to ensure a life after the US. For India, Karzai is a better bet than the Taliban, so among the first things India should do is to be able to train their officer corps, many of whom already come here for soft training. There are supporters in Karzais circle like Asadullah Khalid (erstwhile governor of Kandahar) and Gul Agha Sherzai (Nangarhar) whom India can help. Most of all, India can help Karzai govern better.
Primarily, India will have to step up its engagement with the Pashtuns. Since 2001, India has been doing precisely this, and its no coincidence that Indias enormously successful small projects are scattered through the Pashtun provinces. As one official remarked,
There is no door in Afghanistan that is closed to India any longer. But as one security official admitted, the Pashtuns will always have naturally Pakistani leanings, which have to be factored in as well.
India s traditional engagement with Afghanistan has been through the Pashtun tribes. India has picked up a lot of IOUs over the past years, nows the time to cash in.
Indias Pashtun outreach should straddle the Durand Line though there it will be much tougher going. Meanwhile, the Tajiks and Hazaras can be empowered once again though there is no formal Northern Alliance any longer. India can join hands with the Russians and could expect some cooperation from Iran, but Iran is always iffy.
Former Pakistan envoy, G Parthasarathy says, Indias role cannot be marginalised.
We should train the Afghan army and open Indian markets for Afghan produce.
On the military side, there is a case for more proactive Indian security tasks in Afghanistan, without sending troops. Thus far, India has held back, which is counter-productive. The airbase in Ayni, Tajikistan, can be given more teeth. And if China can think of overseas military bases, so should India.
The prize is not Afghanistan, its peace