The Canadian NATO Parliamentary
Association has the honour to present its report respecting its participation
in the meetings of the NATO Parliamentary Assembly, held in Missouri and
Washington, D.C., United States of America from 9 to 14 July 2010. Canada was
represented by Senator Jane Cordy.
A joint delegation consisting of
Members of the Committee on the Civil Dimension of Security (CDS) and the
Political Committee’s Sub-Committee on Transatlantic Relations (PCTR) visited
the United States from 9 to 14 July 2010. The delegation, headed by
Congresswoman Jo Ann Emerson (United States), Chair of the CDS, and
José Luis Arnaut (Portugal), Rapporteur ad-interim of the PCTR, comprised 31
Members from NATO member states and countries associated with the NATO
PA. In Washington, the delegation held meetings with senior
representatives from the US Departments of State, Defense and Homeland
Security, as well with a number of independent experts. The discussions
focused on Afghanistan, transatlantic relations, and the situation in Iran and
Iraq. The group was also briefed on developments in Russia and
Ukraine. Homeland security, biological threats and cyber defence
were also covered in the meetings. Earlier, on 9-11 July 2010, Congresswoman
Emerson hosted the visit of the CDS delegation to St Louis and Rolla,
Missouri. The visit provided an opportunity for members of the delegation
to meet representatives of leading defence and technology industries, learn
about cutting-edge research projects conducted at the Missouri University of
Science and Technology and discuss maritime and aviation security with
officials from the US Army Corps of Engineers (USACE), the US Coast Guard, St
Louis Lambert Airport and the Transportation Security Administration (TSA).
MISSOURI, 9-11 JULY (MEMBERS OF THE
CDS ONLY)
During the visit to Missouri, the
delegation met with top executives of two Missouri-based defence industries,
Boeing Defense, Space and Security, and DRS Technologies – Sustainment Systems
Inc. (DRS-SSI), as well as with the leadership of two leading companies in high
technology solutions, Brewer Science and World Wide Technology. Information
gathered on this visit will support the Committee’s ongoing work on homeland
security and civil protection.
At Boeing, members were able to tour
the F-18 and F-15 jet production lines, and at DRSSSI, they learned about some
of the company’s products, including the Tunner 60K aircraft cargo loader, the
Expeditionary Water Packaging System and the Expeditionary Water Reclamation
System, the Armored Knight’s systems integration platform, and a manportable
ground surveillance radar.
The delegation toured the premises of
Brewer Science and learned about the company’s lead product – an
anti-reflective coating for semiconductor chips. World Wide Technology
executives informed the delegation about the company’s services in the areas of
supply chain management and cyber-security.
The delegation also toured the Missouri
University of Science and Technology (Missouri S&T) campus and visited
several of the university’s labs. Members were informed that Missouri S&T,
with a student body of some 6,800 and a faculty of some 460, is one of the top
five technological research universities in the United States. They learned
about several of the University’s cutting-edge research projects, some of which
are conducted in co-operation with industry or the Department of Defense. In
particular, members were informed about research carried out on the detection
and neutralisation of Improvised Explosive Devices (IED), on the repair and
rehabilitation of built infrastructure, as well as on the development of a
millimetre wave imaging system.
The delegation held meetings with
representatives of the USACE, the US Coast Guard and the navigation industry at
the Melvin Price Lock and Dam in Alton, Illinois, to discuss inland waterway
security. They all emphasised the vital importance of the Mississippi river
transportation corridor to the local and national economy. The delegation was
informed that more than 60% of the United States’ grain exports, about 22% of
domestic petroleum and petroleum products, and 20% of coal used in electricity
generation, are transported on inland waterways. Ensuring the safety and
security of navigation on these inland waterways is therefore essential.
The USACE plays three main roles in
relation to inland waterways: supporting water resource development, providing
engineering and supporting national security. Specifically, the Corps is tasked
with maintaining a depth of 9 feet for navigation all along the Mississippi
river from St Paul to New Orleans. It also assumes flood risk management,
ecosystem restoration and environmental stewardship missions. USACE’s St Louis
district lies at a particularly strategic location, at the confluence of four
major rivers: the Mississippi, the Illinois, the Missouri and the Ohio. It
operates with a staff of 750 civilian and two military personnel.
The key policy document in the field of
maritime security is the 2002 Maritime Transportation Security Act (MTSA). The
MTSA requires the establishment of Area Maritime Security Committees bringing
together all relevant stakeholders, as well as the adoption of vessel and
facility security plans. It also sets maritime security levels, and establishes
a procedure for the adoption of risk assessments.
The Melvin Price complex is a key
element of the Mississippi river navigation system. It includes a 1,200 feet
long main lock and a 600 feet long auxiliary lock. The delegation learned that
it takes just 30 minutes for a 15-barge tow to move through a 1,200 feet lock;
however, most locks on the upper Mississippi are 600 feet, and thus require a
two and a half hour passage time.
The delegation also visited another
landmark infrastructure in the region: St Louis’ Lambert Airport. Lambert is
the 33rd busiest airport in North America, and received 12.8 million passengers
in 2009. The airport hosts 237 flights a day and 14 airlines. It is also hoping
to become a hub for cargo operations to and from China.
In meeting with airport and TSA
officials, the delegation learned that the responsibility for securing the
airport is shared between air carriers, airport operators and the federal TSA.
The TSA’s two main missions are
regulation and screening. The agency is responsible for setting the regulatory
framework for aviation and cargo security. For instance, most recently, the TSA
adopted a regulation requiring airports to screen 100% of cargo starting 1
August 2010. The TSA is also starting to reach out to surface transportation
operators to establish security partnerships.
The TSA is also responsible for
screening passengers and luggage. According to TSA officials, improvised
explosive devices remain the primary threat for passenger planes. New
technologies are now available for detecting explosives, including so-called
“whole-body scanners”, using backscatter or millimetre wave technologies. The
Lambert airport police also maintain nine canine police teams specialised in
explosive detection. In addition to detecting explosives, the TSA and airport
police also use observation techniques to detect suspicious behaviour.
WASHINGTON, DC 12-14 JULY
AFGHANISTAN
Both official speakers and independent
experts agreed that security in Afghanistan remains fragile and that the
situation will continue to be tense over the next months. Anthony
Cordesman, Arleigh A. Burke Chair in Strategy at the Center for Strategic and
International Studies (CSIS), reminded the participants that the insurgency has
gained momentum. In most of Afghanistan there is no meaningful government
presence, the speaker said. He noted that Taliban “shadow governments”, which
had not existed in 2003, had been established in 11 provinces by 2005 and 33
out of 34 provinces in 2009. Violence has risen by 88% nationwide compared
to May last year. Violence and security varies regionally, with the most
difficult areas being in the East and South of the country, although the
situation in the North has experienced increased levels of violence as well,
according to the independent expert.
Department of Defense officials warned
that a rise in casualties could be expected as International Security
Assistance Force (ISAF) moves into areas where it has not been before.
Improvised Explosive Devices (IEDs) in particular pose a major threat to ISAF
forces in Afghanistan, Mr Cordesman stressed. The period between January and
April 2010 saw a 94% increase in IEDrelated incidents from the same period last
year, he added. IEDs account for the majority of the fatalities of
coalition troops in Afghanistan since 2008, according to General Stéphane
Abrial, Supreme Allied Commander Transformation (SACT). To counter the IED
challenge, Allied Command Transformation (ACT) has elaborated a specific action
plan that is designed to address the whole of the system that supports IEDs,
i.e. the planning, the financing and the logistics behind it, the ACT commander
informed the delegation. General Abrial also provided an overview of ACT
activities and informed the group that ACT, in partnership with the US Joint
Forces Command, has deployed the Afghanistan Mission Network, a system that
enables information to flow seamlessly and securely from one national network
to another.
46 countries, including all NATO member
states, but also partners such as Japan which provides vital economic
assistance, are currently engaged in Afghanistan. NATO Allies and coalition
partners committed 9,700 additional troops, increasing the number of non-US
forces there to over 50,000, the delegation was informed. Approximately
two-thirds of the additional forces are currently in place, the remaining
one-third will be on the ground by August 2010, Defense Department
representatives informed the delegation. In the same timeframe, the US
will have completed the deployment of additional 30,000 soldiers, increasing
the total number of US forces in the country to about 100,000, a three-fold
increase on the corresponding number of US troops in early 2009.
Complementing the military buildup, the
US has tripled the number of civilian experts in Afghanistan to currently
approximately 1,000, according to Defense and State Department officials.
The number of civilian experts will continue to increase, reflecting the US
administration’s approach that Afghanistan requires a fully integrated civil-military
effort, the delegation learned. Agriculture is the number one
non-military priority, both on the provincial and district level,
Dan Feldman, Deputy Special Representative for Afghanistan and Pakistan at
the US Department of State, informed the delegation. Poppy production remains a
very difficult challenge, and that the interconnectedness between drugs and
insurgency is very clear, the delegation was told. Therefore, rebuilding
the agricultural sector and developing alternative livelihood programmes will
help draw away support from the insurgency and instead reconnect farmers with
the government.
Official and independent speakers
pointed to considerable progress in Afghanistan, both in terms of security and
in terms of reconstruction. In the South, ISAF and US forces have taken
away the sanctuaries from the insurgents and forced them to disperse.
Although coalition troops have not been as successful as expected in the Marjah
province, the population-centric focus is working in other areas in the South,
according to Dr Cordesman. Moreover, nearly seven million Afghan children
are now in school, as opposed to less than one million a decade ago under
Taliban control. Immunisation rates for children have gone up substantially and
are now in the 70- to 90%-range nationwide. Cell phones are widespread in
a country where this was virtually unseen in the Taliban days, he said and
added that roads and bridges and other infrastructures have been repaired or
built.
Speakers emphasised that the focus of
the military engagement is on population-centric counterinsurgency which
requires killing, capturing and separating the insurgents from the
population. One Department of Defense official reassured the delegation
that the change in command of ISAF forces will not have an impact on the
implementation of the plan in Afghanistan and pointed out that the new ISAF
Commander, General Petraeus, had been closely involved in the planning.
The campaign strategy pursued by Allied forces under General Petraeus is adapted
to the complexity of the situation on the ground and aims at “reaching a
reasonable degree of development” in the country, Dr Cordesman
underlined. He described the campaign strategy in Afghanistan as focusing
on:
·protecting the population (with the priority on
high-density population areas where insurgent groups operate primarily with
disaffected Pashtun populations);
· enabling the Afghan National Security Forces
(ANSF – with an emphasis on accelerating and expanding their force capacity and
capability; partnering at every echelon);
· neutralising “malign influence” (identifying
and reporting corruption; helping to forge responsible and accountable
governance);
· supporting the extension of government (gaining
active support of the population by empowering legitimate sub-national leaders
with effective population security measures);
· supporting socio-economic development (gaining
active support of the population by creating security conditions that provide
space for community-based development opportunities).
There was consensus that NATO Allies
and the international community need to have realistic goals as well as
realistic timelines in Afghanistan. Defense and State Department
officials stressed that the main goal of the Afghan campaign was unchanged:
dismantling, disrupting and defeating Al Qaeda and the Taliban and preventing
Afghanistan from ever becoming a terrorism safe haven again. There is, however,
a divergence of coalition expectations and campaign timelines, Dr Cordesman
commented. Speakers agreed that it will take some time to see how the new
strategy, originally devised by General Stanley McCrystal, will work out.
The CSIS expert said he expected that it will be possible to assess whether the
new strategy and tactics will have been successful by mid-2011.
With regard to the ANSF, Dr Cordesman
suggested that the Allies are just beginning to form effective Afghan
forces. The attrition rates among the ANSF are still very high, sometimes
up to 70%, he said. Earlier, up until 2008 and 2009 there were too few
efforts to train the Afghan army and police, he regretted. One Defense
Department official also acknowledged that the efforts in Afghanistan were under-funded
and under-resourced for a considerable period of time. Moreover, the
coalition was reactive rather than proactive and Afghanistan, which had been
one of the poorest countries in the world before the war and was devastated by
30 years of conflict. While the resources for providing training have
been significantly increased, finding personnel for the NATO Training Mission –
Afghanistan (NTM-A) remains a challenge according to the independent
expert. Mr Feldman said that the Afghanistan mission is still short
of 420 trainers, as well as police mentors and that filling the trainer gap is
a high priority. Department of Defense officials pointed out that the focus of
training efforts for the ANSF is not only on the quantity of Afghan forces, but
on quality as well; the Afghan National Army (ANA), is currently the most
respected government agency, the delegation heard.
Speakers generally shared the view that
it will take a number of years before Afghan forces can truly handle the
security tasks in the country on their own. Success in Afghanistan therefore
requires a sustained effort long beyond 2010 or 2011, according to Dr
Cordesman. He said that the major transition to the ANSF should not begin
until the force is ready, which, he suggested, could be probably at the end of
2012 at the earliest. Speakers agreed that the slow phasing down of US
and Allied troops must be conditions-based, and that the ANSF will continue to
rely on Allied funding and enablers for quite some time. They also
emphasised that the beginning of the transition phase in July 2011 is not a
race to the exit. Mr Feldman said that ISAF's mission will change, but
not end with the beginning of the transition phase.
One Department of Defense official
stressed the need to make the citizens part of the solution. The
coalition’s emphasis on population-centric counterinsurgency has led to a
notable decrease in the number of civilian casualties in recent months, the
delegation learned. However, as Dr Cordesman noted, winning popular
support is as much a challenge as tackling the insurgents. The lack of
good governance, both on national, provincial and district levels, remains a
critical issue. The CSIS expert stressed the need to achieve immediate
progress in governance, prompt justice, jobs, and economic opportunity in the
field as part of each operation. Building more effective local
authorities will require considerable additional time and many of the local
authorities are corrupt or incapable, Dr Cordesman said. The US is focusing
aid more on the provinces, prioritising assistance for the most important
districts first. He pointed out that according to recent polls, 83% of
Afghans feel that government corruption affects their daily lives.
However, despite their feelings about government corruption, Afghans’
confidence in their government is slowly increasing according to polls.
Dr Cordesman also argued that a
considerable part of the corruption is caused by international donors as well
as the military which, over the years, have spent a vast amount of money but
have not established effective accountability and transparency. He said
that the US, ISAF, UNAMA, and international air organisations must address
their role in causing corruption and waste. Moreover, UN, national, and
NGO aid efforts need far more focus on validated requirements, Afghan
perceptions, measures of effectiveness, and honest contracting as currently is
the case, he added. Mr Feldman acknowledged that corruption remains a
serious problem and added that the US Administration is trying to install as
many robust oversight mechanisms as possible. In this context he said
that the US is decreasing its emphasis on large contractors because working
through them limits the opportunity to exert oversight over subcontractors.
Moreover, aid money has been centred on
spending money, on doing projects, Dr Cordesman commented. He also
suggested that the UN still lacks any reliable measure to rate how effective
its civilian efforts are. Similarly, there were no reliable measures to
rate military efforts, he added. “It has taken us about eight years to
understand how the situation really is”, Dr Cordesman said.
Summarising his view on the international assistance provided to Afghanistan,
the speaker commented that he had “never seen so many international efforts
going into one project as in Afghanistan with so little effectiveness”.
There was unanimity among speakers who
commented on Afghanistan that better civil-military co-ordination was necessary
to improve the situation in the country. There is still no unity of
effort, Dr Cordesman said and noted that many militaries do not co-ordinate
their work with aid organisations of their countries. The speaker also
suggested that the civilian-military disconnect in the “clear-hold-build”
campaign continues to be a major challenge that needs to be addressed.
According to Dr Cordesman, co-operation between the military and the Provincial
Reconstruction Teams (PRTs) must also be improved and become more operationally
relevant. Not enough countries manage their PRTs effectively, often the
time of deployment of officers and experts is too short.
Allies have recognised the need for
improvements and General Abrial mentioned that ACT has been tasked with
supporting Ambassador Sedwill, the NATO Senior Civilian Representative in
Afghanistan, with learning lessons from the experience in Afghanistan in
integrating a range of civil and military actors. The first thing that is
needed is a mindset of co-operation between the military, government agencies,
international organisations, NGOs and some actors from the private sector, he
explained. It must be inclusive enough to accommodate the operational
cultures of very diverse players, yet consistent enough to deliver. The keyword
is unity of effort, not unity of command, he concluded. General Abrial informed
the delegation that ACT had been working on developing a counterinsurgency
doctrine for NATO, which was currently being reviewed by Allies.
State and Defense Department officials
stressed the importance of the upcoming conference of Foreign Ministers in
Kabul on 20 July, which would provide an assessment of the achievements and
challenges. Mr Feldman noted that the conference will bring together 40
Foreign Ministers and will be the largest international meeting since the late
70s. The conference will provide the Afghanistan government with an
opportunity to present the progress they have made. The government in
Kabul can also inform about its reform agenda of developing a system of good
governance, justice, accountability and services in the interests of the
people.
Both official and independent speakers
emphasised the pivotal role of Pakistan for the stabilisation of Afghanistan
and stressed the importance of encouraging Pakistan to do more to improve the
situation in Afghanistan and helping Pakistan to increase its ability to combat
the insurgency. Dr Cordesman noted that 130,000 Pakistani forces are
currently deployed to the Federally Administered Tribal Areas (FATA) and Northwest
Frontier Province (NWFP), which, it is believed, insurgents use as a
sanctuary. The troop deployment on the western border of Pakistan is the
largest in the nation’s history and more than 100,000 troops were moved from
the eastern border with India.
Mr Feldman said that the US has
developed a broad, long-term relationship with Pakistan that goes beyond
Afghanistan. Reflecting the importance of the relationship, the strategic
USPakistani dialogue has been elevated to ministerial level, he said. By
now, thirteen working groups, co-chaired by both sides, have been
established. The working groups go beyond purely military and security
issues but also cover issues such as water management, health, agriculture,
education, economics and finance, access to markets, energy, science and
technology, communications, women’s issues and law enforcement, Mr Feldman
said. Acknowledging that many Pakistanis hold a negative view of the US,
he expressed the hope that US assistance to help Pakistan address its economic
and social problems will change this. The US will sustain its
counterinsurgency support for Pakistan, but will also look at creative ways to
help address the civilian-military relationship in the country. Mr
Feldman emphasised that the US alone cannot succeed in helping Pakistan
to address its challenges, but that a truly international effort is necessary.
In this context, he mentioned a Multi-Donor Trust Fund (MDTF), designed to
restore infrastructure, services and livelihoods in the conflict-affected areas
of the North-West Frontier Province and the FATA has been established.
However, he admitted that reconstruction in FATA is extremely difficult.
Countries like Turkey and the UAE can make a significant difference,
particularly in education reform, he said.
Mr Feldman emphasised the importance of
the regional stabilisation strategy, which is currently being updated.
One of the goals of the US’ regional strategy is also shifting the calculus of
Afghanistan's neighbours from competition to co-operation. Responding to
a question from the delegation, Mr Feldman said that Kashmir is not part of the
mandate of the office of the US Special Representative for Afghanistan and
Pakistan. He added, however, that the US welcomes high level
Pakistani-India meetings on this issue.
TRANSATLANTIC RELATIONS AND NATO
Meetings in Washington also covered
transatlantic relations and NATO issues. Speakers who spoke on the
subject generally believed that Europe remains an important player as
Paul Belkin of the Congressional Research Service (CRS) put it. The
US recognises that it cannot handle all security challenges alone and continues
to see Europe as a key, if not the key, partner in addressing security
challenges, he said. The US and the Allies share the same values and continue
to see challenges from a similar perspective, he added. John Rollins of
the CRS stressed that the Obama Administration has taken a much broader
approach to security as is reflected in the National Security Strategy
(NSS). In comparison to the “wartime strategy” of the previous
administration, the focus of the Obama Administration’s strategy is on
restoring global leadership, the CRS expert noted. Therefore, the current
NSS emphasises better collaboration and cooperation with international partners
as one of the guiding principles, he added. Heather Conley, Senior
Fellow and Director, Europe Program at CSIS, noted that US-European relations
are in transition, mainly because they are less shaped by politics, i.e. by
ideological divides such as freedom versus communism and because of the
generational change in leadership. She considered the transatlantic
relationship as shaped by four main issues, i.e. the global economic crisis,
the resetting of the US-Russia policy, the Middle East (particularly Iran, but
also the evolution of Turkey's foreign policy), and how the Allies shape the
narrative of Afghanistan.
Speakers generally believed that a
close NATO-EU partnership is important for tackling future security challenges
as well as for relations with Russia. They noted, however, that NATOEU
relations must be improved, particularly on a political level. Ms Conley
cautioned that a closer relationship will be difficult to reach, mainly because
European divisions make transatlantic unity even more difficult to
achieve. Commenting on the future development of the EU, she said that
there are three different scenarios in Europe: increased integration,
disintegration of the Eurozone, or less co-operation among EU member
countries. Mr Belkin argued that there is an unprecedented level of
support in the US today for an EU security identity. Yet, there also seems to
be some confusion in Washington about how to deal with the EU.
One of the challenges for a close
US-European partnership is the big and increasing gap in defence
spending. While the US is spending about 35% of its defence spending on
investments (which is about two times as large as that of its NATO partners),
the Allies are decreasing their defence expenditures. An additional
challenge that may put strain on the transatlantic relationship is the gap in
military technology between the US and the Allies, the delegation was
informed. Ms Conley suggested that these developments will lead to
the emergence of an interest-based Atlanticism where the US will also look to
other partners to deal with the relevant issues.
Ms Conley noted that NATO is facing a
number of challenges. Transatlantic unity will be tested by two other
issues in particular, namely Afghanistan and Iran, Ms Conley said. Other
speakers suggested that NATO’s ability to succeed in Afghanistan is seen by
some in the US as a litmus test for Alliance solidarity. Mr Belkin argued
that it is difficult to imagine NATO ever engaging again in a similar operation
based exclusively on a sense of solidarity; this will have to be supported by
common interests as well, he said. Moreover, the Allies need to “rethink
enlargement” as NATO is unlikely to take the lead in the open door policy in
the immediate future, Ms Conley suggested. While NATO’s Open Door policy
continues, it is unclear what this will mean for Ukraine and Georgia.
Referring to the issue of tactical nuclear weapons, the CSIS expert suggested
that NATO Allies are likely to revisit the issue of “nuclear burden sharing”.
General Abrial and Mr Belkin considered that the update of NATO’s Strategic
Concept, which is due to be agreed upon by Heads of State and Government at the
November 2010 Lisbon Summit, will reinvigorate the Alliance. In
this context, they said that the new concept is likely to reinforce Article 5
and to emphasise the relevance of partnerships.
IRAQ
The delegation also obtained briefings
on the Gulf region, particularly on latest developments in Iraq and in
Iran. According to Kenneth Pollack, Director, Saban Center for Middle
East Policy, Brookings Institution the international community devotes far too
little attention to Iraq. What happens in Iraq is crucial not only for
the country, but for the whole region. Iraq today is fundamentally
different from 2006/2007; there have been many positive developments in the
last year, the speaker noted. Security in Iraq continues to improve and
the insurgency has been gravely weakened, though it is not completely
defeated. Attacks on US and Iraqi forces, and even attacks on civilians
are down even from the already low-levels achieved last year.
However, although Iraq has become safer
than it was even a few years ago, it is still not a “normal” country even by
the standards of security in the Arab world. There are still many people
killed every month by inter-communal violence. Moreover, corruption and
organised crime continue to flourish while the country’s infrastructure,
particularly water and energy, is still decrepit and dysfunctional as a result
of twenty years of damage and neglect. Therefore, Iraq is “absolutely not
solved”, he noted and added that there is a real chance that the country could
slide back into a major civil war similar to the one it experienced from 2005
to 2007. Academic studies on inter-communal civil wars have shown that
about half of the states that suffered from civil wars similar to the one in
Iraq are very likely to face a re-occurance of conflict, often within five
years, he pointed out. Moreover, if the country possesses valuable natural
resources like diamonds, gold or oil, the likelihood rises even higher.
Thus, Iraq remains highly vulnerable to a resurgence of civil war.
Mr Pollack considered the parliamentary
elections in early March as very successful and a “huge victory for the Iraqi
people” who had largely voted for the two parties considered most secular,
least connected with formal militias, and least tied to the vicious
sectarianism of the civil war. Iraqis voted overwhelmingly for change,
only 64 of the incumbents (out of 325 of the members of the Council of
Representatives) were re-elected. The vote also reflects Iraqis’ desire
for political, economic and social stability and progress. However, more
than four months after the elections no government has been formed and a “furious
battle for the formation of government” is still going on, he said. Many
politicians do not believe in democracy; if they could, they would go back to
the “old bad politics”. In contrast, the large majority of the Iraqi
people have made clear that they want representative, transparent government
that is responsive to their needs and they want the rule of law.
Consequently, there is a great danger in allowing the perception to take hold
that the election was “stolen” in the politicking that followed it, the speaker
underlined. He concluded by saying that the precedents set in this
election will endure for a long time to come and the international community
must pay more attention to the final outcome of this election.
Though foreign investment is increasing,
particularly in the oil sector, the country’s economy is still weak and
unemployment remains high. Unfortunately, there will be no massive
increase in oil revenues before 2014 due to the structure of the oil contracts
that Iraq has signed with various oil companies. Iraq is, therefore,
likely to face severe problems between 2011 and 2014 when the Iraqi people will
request improvements in infrastructure but the financial resources are simply
not there.
Although US influence in Iraq is
declining, it is still very significant, and because of the political deadlock,
that influence is rising again with many Iraqis looking to the United States as
a mediator to help them out of this situation, the speaker said. Although
Iraqi forces are increasingly efficient, US military forces remain vital to the
stability and tranquility of Iraq. As long as US combat troops remain in
Iraq a coup appears unlikely. Fear and anger remains pervasive and the
reduction of the US troop presence to about 50,000 by the end of August 2010
raises fear among many Iraqis that the country will go back to fighting after
the departure of US forces from Iraq in December 2011, according to the current
Security Agreement between Iraq and the US. Iraq slipping back into a civil
war would be catastrophic for the country as well as for the whole Gulf region,
as civil wars tend to spill over into neighbouring countries, Mr Pollack
warned.
IRAN
On Iran, Mr Pollack commented that the
July 2009 presidential elections and the aftermath significantly changed the
country. A large number of Iranians believed that the elections were
rigged, he said adding that there was a real debate in the Iranian political
elite on how to deal with the protests. However, after the hardliners prevailed,
the regime cracked down very hard on the dissenters. As a result, the
moderates have lost influence in the country’s decision making process.
The Iranian regime looks as hard-line as it did in 1981, he suggested and said
that it presents a much more aggressive line, which raises real fears among its
neighbours and the international community. Reaching a diplomatic
agreement with Iran on its nuclear programme has thus become more difficult as
even if the regime in Tehran did not pursue a nuclear weapons programme, there
is a lack of trust.
If Iran were to pursue a nuclear
weapons programme it would be the “death knell” for the Nuclear
Non-Proliferation Treaty (NPT), Mr Pollack warned. If Iran developed
nuclear weapons countries in the Gulf and Egypt would develop nuclear weapons’
capability of their own. As difficult as it is to sanction Iran for its
nuclear programme, it is unimaginable to sanction Saudi Arabia, the UAE and
other Gulf states. Mr Pollack stressed that the US Administration did
make a genuine effort to reach a peaceful settlement with Iran on its nuclear
programme, which Tehran declined. The peaceful offer to Tehran was also
instrumental in obtaining Russia and China’s support for a new UN Security
Council resolution. The proposal by Brazil, Turkey and Iran to swap
nuclear fuel came too late in the diplomatic process to be successful, he
said.
Commenting on the sanctions regime
imposed by the most recent UN Security Council resolution against the regime in
Tehran, Mr Pollack said that the sanctions should have focused much more on
human rights. He added that there are lessons to be learned from the
sanctions on South Africa. He anticipated that the US Administration has
“bought itself about a year to see if sanctions work”, though he cautioned that
the period may actually be shorter as there are a lot of actors with their own
agendas (both inside the US and internationally). If the regime in Tehran
continued to defy the international community it is not clear what will happen
next time. The US administration, which had put in “a monumental
diplomatic effort” to reach a diplomatic agreement with Tehran might decide to
spend its political capital elsewhere. Eventually, there would be three
options to deal with a defiant Iranian regime, namely, regime change, military
option, or containing Iran. He considered “regime change” unlikely as the
Iranian regime is far too strong and the green movement is too weak.
HOMELAND SECURITY
Terrorism
Rick “Ozzie” Nelson, Director of the
Homeland Security and Counterterrorism Program at the Center for Strategic and
International Studies (CSIS), provided an overview of the current threat posed
by Al Qaeda and its affiliates. He warned that while the number of its
operatives has gone down, including in Afghanistan (where a recent CIA estimate
put them at 60-100), Al Qaeda continues to pose a serious threat and should
receive sustained attention. The organisation has progressively muted from a
centralised to a decentralised force, bringing together an ensemble of regional
groups pursuing both regional goals and a shared ambition to contribute to Al
Qaeda’s global agenda. Examples of these “like-minded groups” include
Lashkar-e-Taiba in Pakistan, Al Qaeda in Iraq, Al Qaeda in the Islamic Maghreb,
Al Shabaab in Somalia, as well as the Islamic Jihad Union and the Islamic
Movement of Uzbekistan in Central Asia. Another increasingly worrying
phenomenon is the radicalisation of young populations in Europe and the United
States and what is referred to as “homegrown terrorism”.
Given these developments, Mr Nelson
argued that Western governments should focus on the following priorities:
·pursue current efforts to degrade Al Qaeda’s
core;
·continue to give priority attention to, and to
improve relations with, Pakistan;
·avoid letting Afghanistan and Iraq divert
attention from developments elsewhere; it is significant in this regard that
the most recent attempts were planned in Yemen and Nigeria;
·continue to focus on the use of the internet for
radicalisation, as well as on interdicting intermediaries;
·counteract Al Qaeda’s narrative, accusing the
United States and the West of being at war with Islam and killing innocent
Muslims; in reality, at least 75% and probably as many as 90% of Al Qaeda’s
victims are Muslims, a fact that should be emphasised more;
·understand that terrorism is here to stay and
will be a long term struggle;
·recognise that co-operation and partnerships are
more critical than ever, and re-embrace the law enforcement approach to
terrorism.
Bart Johnson, Principal Deputy Under
Secretary for Intelligence and Analysis at the Department of Homeland Security,
also emphasised the challenge posed by radicalisation of young Americans. He
informed the delegation that Al Qaeda had recently published an English version
of its magazine, which could be used as a tool to reach out to new categories
of disenfranchised youth. Detecting these individuals was extremely difficult,
particularly when they are “lone wolves” coming back to the United States after
receiving training abroad. It was therefore essential to work with community
based organisations to detect warning signs as early as possible and try to
integrate these individuals in local communities before they turn violent. A
key priority of the US government is also to enhance synergies between the
myriad law enforcement agencies in the country. This was the main goal assigned
to the recently created “fusion centres”. Mr Johnson also stressed the
need for close international co-operation, particularly among NATO member
states, in tackling the threat by internationally active terrorist groups.
Biological threats
At a luncheon meeting organised by
Emergent BioSolutions, a leading partner of the US Federal Government for
developing, manufacturing, and supplying critical biodefence medical
countermeasures, the delegation heard a briefing by Dr Robert Kadlec, Director
of PRTM BioDefense and Public Health Practice, on current biological threats
and the US response.
Dr Kadlec explained that biological
threats encompass two aspects: natural pandemics and deliberate events. These
are different threats, requiring different capabilities; however there is also
a degree of convergence between them. Current US policies recognise this
reality and the 2009 National Strategy for Countering Biological Threats builds
upon past initiatives regarding both natural pandemics and deliberate events.
The realisation of the seriousness of
the threat posed by bioterror came after the terrorist attacks of 11 September
2001 and the anthrax letter attacks, Mr Kadlec reminded delegates. As early as
1999, Al Qaeda had decided to develop a bioterror effort. Today, some analysts
consider that a biological attack is more likely than a nuclear attack.
Terrorist groups have made their intent to acquire biological weapons clear, Mr
Kadlec noted. The consequences of such an attack would be catastrophic: 1 or
2kg of agent dispersed through aerosol could cause some 450,000 illnesses and
380,000 deaths, and cost the economy over USD 1.8 trillion according to Mr
Kadlec’s estimates. He regretted that funding for biodefence programmes (USD
5.4 billion in 2008) is still far below that for nuclear programmes (USD 54.4
in 2008 for offensive and defensive capacities) and cyberdefence (USD 11.4
billion in 2008, with a planned increase to USD 30 billion in 2010).
Mr Kadlec explained that a key priority
for mitigating risk is speed of reaction: casualties can be avoided if the
threat is detected and determined, and treatment is distributed and dispensed
in the first 2 days following the event. More broadly, since catastrophic
events are extremely hard to predict, the strategic goal of biodefence policies
should be to build resilience, Mr Kadlec emphasised.
Cyberdefence
Mitch Komaroff and Don Davidson of the
Department of Defense’s Globalisation Task Force, briefed parliamentarians on
current cyber-threats and the US response. The speakers stressed the national
critical infrastructure’s reliance on cyberspace, and therefore its
vulnerability to cyber-attacks. They noted that the increasingly high
level of sophistication of available malevolent tools combined with the
increasingly low level of knowledge required of malevolent actors was leading
to a rapidly growing number of attacks from around the world. Organised crime
is also increasingly present and active in cyberspace, they warned. The attacks
against Estonian sites in 2007 and Georgian sites during the conflict with
Russia in 2008 had brought renewed international attention to this challenge,
as well as highlighted the need for an international response.
The speakers informed the delegation
that the US government’s 2009 strategic plan aimed to preserve freedom of
action in cyberspace, while maintaining superior information capacity and the
world’s best cyberdefences. It set four main goals: organise for unity of
purpose and speed of action; enable secure mission-driven access to information
and services; anticipate and prevent successful attacks on data and networks;
and prepare for and operate through cyber-degradation or attack.
One aspect of the 2007-2008
Comprehensive Cybersecurity Initiative was also the protection of the supply
chain. The speakers explained that this programme aims to develop tools to
include systems assurance as one element of systems engineering with a view to
mitigating risk across the entire lifecycle of IT products. The United States
was currently striving to promote international standards on supply chain risk
management. As 85% of the United States’ critical infrastructure is privately
owned, ensuring that private owners and operators also adopt best practices is
essential, the speakers emphasised.
Disaster Response and the Gulf Oil
Spill
Robert Fenton, Deputy Assistant
Administrator for Response at the Federal Emergency Management Administration
(FEMA), briefed the delegation on FEMA’s mission and organisation. FEMA is one
of the Department of Homeland Security’s operational components. Its mission is
to “support our citizens and first responders to ensure that as a nation we
work together to build, sustain, and improve our capability to prepare for,
protect against, respond to, recover from, and mitigate all hazards”.
The National Response Framework (NRF)
is the lead document organising federal assistance in the event of a major
disaster. The NRF establishes 15 primary functions (e.g. transportation,
communications, energy) and designates a lead organisation for each of them.
These functions aim to bundle federal resources and capabilities to support
other federal, state and local responders. Disaster relief operations are
co-ordinated through the National Response Coordination Center.
Mr Fenton stressed that the NRF is only
activated for significant national incidents and at the request of local
authorities. Only very rarely has the President taken the decision to transfer
responsibility for disaster response to the federal level. This did not even
happen following Hurricane Katrina.
FEMA maintains several key assets
across its 10 operational regions. These include 16 Incident Management
Assistance Teams; three of which are specialised in chemical, biological,
radiological and nuclear (CBRN) incidents. Deployable within three hours of the
incident and selfsufficient for 72 hours, these teams constitute the initial
federal presence on the ground and support local governments with disaster
planning and response. Other important support capabilities include urban search
and rescue teams; disaster emergency communications detachments; and
prepositioned equipment. Mr Fenton informed the delegation that FEMA is
increasingly focusing on catastrophic preparedness.
57. The delegation also discussed
current efforts to contain the oil spill in the Gulf of Mexico. Jonathan
Ramseur of the Congressional Research Service emphasised the scale of the
disaster: the spill released 30,000 to 60,000 barrels a day, amounting to 3 to
5 million barrels or 125 to 214 million gallons of oil, in the 85 days since
the initial incident. The United States had not experienced such an oil spill
since the Exxon Valdez incident in 1989, the scale of which, however, was much
more limited (11 million gallons of oil). The Gulf spill had forced 35% of the
region’s fisheries to close. The response effort involved 7,000 vessels and 600
skimmers, the largest collection of such equipment in world history.
According to Mr Ramseur, the Gulf oil
spill raised several important policy issues:
·regulation of offshore activities;
·the liability and compensation framework;
·the balance of risk and reward of the
exploitation of continental shelf resources;
·the limits of available technology; and
·the organisation of federal response efforts.
On the last point, Mr Fenton clarified
that the US Coast Guard was the lead federal agency in charge of the Gulf oil
spill response. FEMA only played a supportive role.
DEVELOPMENTS IN RUSSIA, UKRAINE, THE
CAUCASUS AND CENTRAL ASIA
Ukraine
Ambassador Steven Pifer, Senior Fellow
for Foreign Policy at the Brookings Institute’s Center on the United States and
Europe (CUSE), presented two narratives to explain current developments in
Ukraine. One was a grim scenario, pointing to a series of decisions undermining
Ukraine’s sovereignty, as well as concerns regarding freedom of the media in
particular. A second scenario was less pessimistic, emphasising statements by
Ukraine’s leadership that the country wanted close co-operation with NATO
(though not NATO membership) and that it would not join the
Russia-Kazakhstan-Belarus customs union due to fears of undermining the
country’s prospects of accession to the World Trade Organization.
Ambassador Pifer called on Western
governments to send strong messages to Ukraine regarding both the benefits of
engagement and the limits of Western support in the event that the country were
to take further steps to undermine fundamental freedoms or restrict its own
sovereignty.
According to Ambassador Pifer, it was
clear that a large majority of Ukrainians did not want NATO membership. At the
same time, while 80% of Ukrainians want good relations with Moscow, only a
small segment of the population wants to unite with Russia, and the Ukrainian
government has made clear it does not seek to join the Commonwealth of Independent
States (CIS) or the Collective Security Treaty Organization (CSTO) It is
remarkable that 55 to 60% of Ukrainians support joining the European Union
(EU). Although most Ukrainians do not understand what membership in the EU
actually requires, this provided the EU with significant leverage. Ambassador
Pifer regretted, however, that the EU had not offered the prospect of eventual
membership for Ukraine.
Russia
Dr Fiona Hill, CUSE Director, stressed
that the Obama Administration had inherited a very confrontational relation
with Russia, and the “reset policy” was meant as an instrument to tone down the
rhetoric and promote agreement on a number of key issues. However, the
administration had no illusion that this was going to change Russia.
Nevertheless, Dr Hill noted that Russia
had recently adopted a more co-operative tone and attitude. It was unclear,
however, whether this marked a mere reaction to the global economic crisis or a
deeper shift in foreign policy. Over time, Russia was evolving, particularly
through exposure and adaptation to European norms. Thus, rulings by the
European Court of Human Rights had had a significant impact on Russia’s
judiciary system. Visa facilitation with the EU could also have a long-term
positive effect on the country, Dr Hill argued.
However, it would take bigger steps to
be able to talk of genuine change. Among these, Dr Hill cited:
·addressing the current opacity of Russia’s
central system of governance;
·increasing transparency in the economic sector;
·real progress on elections and local governance;
·a more even-handed foreign policy, which would
not single out one country at another’s expense;
·greater transparency in the Katyn plane crash
inquiry; and
·a warming of relations with the United Kingdom.
Russia was also evolving as a result of
changing demographics, Dr Hill and Ambassador Pifer stressed. Studies predict
that, in the next 25 to 30 years, ethnic Russians will only make up 65% of the
population (as opposed to 80% today). Demographic changes in Russia’s Far East and
the southern regions posed particular challenges. Sustained migration to the
South made the situation in this already volatile area even more fragile. It
also prompted the Russian government to focus increasingly on the Caucasus and
Black Sea areas, thereby raising important geopolitical questions.
Dr Hill also addressed President
Medvedev’s proposed new security architecture for Europe. She argued that,
while the initial proposal was a derivative of the 19th century Concert of
Europe, a model clearly unappealing to Western governments, Moscow had now
adapted its proposal. In her view, what Russia really wants is a voice in
European security matters or another Helsinki process.
The delegation was also briefed on the deliberations on the New Strategic Arms
Reduction Treaty (New START) in the US Senate. CRS specialist Amy Wolf
said that it was unclear whether the current political polarisation of the US
Senate and its tight schedule would allow for ratification of the Treaty before
the November mid-term elections. During hearings in the Senate, members had
raised a number of issues both internal and external to the Treaty, including
missile defence and the US weapons modernisation programme.
The Southern Caucasus
Dr Hill argued that US efforts to bring
about an Armenian-Turkish rapprochement had been overambitious, as they had
largely ignored the Azerbaijan factor. Baku had been striving to achieve a
difficult balancing act between the major powers in the region, a balance that
an Armenian-Turkish deal would have jeopardised. Iranian-Armenian relations
were also an important factor, as the opening of the Armenian-Turkish border
would likely weaken Tehran’s position. Meanwhile, US attempts at reinvigorating
the Minsk process on the Nagorno-Karabakh conflict had also proven
unsuccessful, as both parties were quick to use the Minsk Group as a scapegoat
for the lack of progress in negotiations.
Central Asia
Dr Hill noted that developments in
Central Asia today contrasted sharply with the situation in the early 90s, when
all major powers seemed keen to intervene. In contrast, it looked as though
none of the key players knew how to intervene or could find a good reason to
intervene following the crisis in Kyrgyzstan. Meanwhile, however, the situation
there remained very fragile, Dr Hill warned, and a similar crisis could take
place in Tajikistan. Both countries had suffered from the drop in remittances
from migrant workers as a result of the global economic crisis. A further
destabilisation of the region could have adverse consequences for NATO, given,
in particular, its logistical reliance on Central Asia for operations in
Afghanistan.
During the
visit, the delegation also had the opportunity to meet with US Members of the
NATO PA delegation and with other members of the US House of Representatives.
The visit covered a large number of security issues and provided participants
with significant new information about the security issues that are being
covered by the Assembly in this year and next years’ reports.