VZCZCXYZ0000
OO RUEHWEB

DE RUEHNO #0012/01 0111844
ZNY CCCCC ZZH
O 111844Z JAN 10
FM USMISSION USNATO
TO RUEHC/SECSTATE WASHDC IMMEDIATE 3776
INFO RUEHBUL/AMEMBASSY KABUL PRIORITY 1331
RUCNDT/USMISSION USUN NEW YORK PRIORITY 1128

C O N F I D E N T I A L USNATO 000012 
 
SIPDIS 
 
E.O. 12958: DECL: 01/04/2020 
TAGS: PREL NATO AF PK
SUBJECT: STRENGTHENING AFGHANISTAN CIVILIAN COORDINATION 
 
REF: STATE 132520 
 
Classified By: Ambassador Ivo Daalder for reasons 1.4(b),(d) 
 
¶1. (C) Summary.  Post concurs with reftel that appointment of 
a NATO Senior Civilian Representative (SCR) with expanded 
mandate and staff will contribute significantly to improving 
coordination of the civilian effort in Afghanistan.  Many 
Allies agree, as reported separately.  A more robust SCR will 
fill the need for a political counterpart to COMISAF and 
support UNAMA's broader efforts to coordinate international 
civilian assistance.  Existing coordination mechanisms have 
proved unable to persuade nations to synchronize their 
assistance efforts with Afghan government and NATO/ISAF 
identified priorities, undermining the impact and progress of 
international initiatives.  A strong, effective SCR, with the 
staff, mandate and personality to work with ISAF nations to 
bring greater coherency to their counter-insurgency (COIN) 
related civilian efforts, would provide substantial support 
to ISAF, UNAMA and the Afghan government (GOA).  Adjusting 
the civilian chain of command to dual-hat appropriate 
civilians in the field to link subnational efforts with the 
SCR in Kabul, as well as with national governments, would 
promote better coordination.  A clear message from ISAF 
capitals that nations are willing to coordinate (and be 
coordinated) pursuant to an agreed, comprehensive approach 
will be essential.  The London Conference may offer an 
opportunity for Foreign Ministers to emphasize that full, 
meaningful coordination of civilian efforts, led by UNAMA and 
supported by SCR for NATO/ISAF countries, is critical to the 
success of our mission in Afghanistan.  End Summary. 
 
¶2. (C) Allies agree that improved civilian coordination 
requires strengthening UNAMA and the Special Representative 
to the Secretary General (SRSG) and bolstering the SCR's 
ability to coordinate NATO/ISAF COIN-related efforts.  When 
renewing UNAMA's mandate (UNSCR 1868), the UN called for 
strong cooperation, coordination and mutual support between 
UNAMA and ISAF as part of a comprehensive approach to 
addressing the challenges in Afghanistan.  NATO's focus has 
been on improving coordination within ISAF in order to better 
support UNAMA, GOA and ISAF priorities identified in the 
Afghan National Development Strategy (ANDS), the Afghanistan 
Compact (the "Compact"), COMISAF's assessment and related 
documents.  This is consistent with ISAF's mandate to closely 
consult with the GOA and UNAMA, and with the Compact, under 
which ISAF and Provincial Reconstruction Teams (PRTs) pledged 
to promote security and stability throughout Afghanistan, 
including by strengthening Afghan capabilities. 
 
¶3. (C) While the SCR's current Terms of Reference (TOR) are 
arguably broad enough to encompass a more robust role, some 
Allies may press for revisions in order to clarify the scope 
of his expanded coordination authority.  Engaging with Allies 
at NATO, the UN, the EU and in capitals to explain the 
purpose and intent of bolstering the SCR should prevent 
significant erosion of the broad coordination mandate 
envisioned.  Revised TORs should be coordinated with possible 
revisions to a new SRSG's terms of reference and UNAMA's 
mandate when it is reviewed in March 2010 to ensure the 
necessary synergy. 
 
¶4. (C)  The SCR already sits on the Joint Coordinating and 
Monitoring Board (JCMB); in the event an Executive Steering 
Group (ESG) is created, as proposed by SRSG Kai Eide, the SCR 
should be a member, providing another link between ISAF/NATO 
civilian efforts and GOA and UNAMA.  Such a UN-sponsored ESG, 
consisting of appropriate GOA ministers, the SRSG, SCR, 
COMISAF, EU representative and a few other key stakeholders, 
could serve as a joint decision-making body for synchronizing 
civilian and military assessments of Afghan capabilities as 
we move toward the GOA assuming more direct responsibility. 
The ESG would give the SCR a smaller, more flexible outlet 
for engagement and coordination with the UN and GOA, in 
addition to the larger JCMB, and ensure good information 
flow.  By providing a more flexible forum for coordination 
and discussion of NATO/ISAF civilian efforts among the 
primary stakeholders, the ESG would ensure coherency with 
Afghan government priorities at the Kabul and subnational 
government levels. 
 
¶5. (C) Within NATO/ISAF, adjustments to the current civilian 
chain of command would facilitate coordination between the 
field and Kabul, and potentially influence national 
assistance decisions outside the SCR's purview.  National 
senior civilians at district, provincial, Task Force and 
Regional Command (RC) would also serve as ISAF SCRs, 
reporting up through the chain of command to the Deputy SCR, 
who would focus on operational issues and coordination 
throughout the RCs.  Afghan and ISAF priorities could be 
communicated more effectively to and from the field, 
improving the connection between Kabul and the provinces and 
better focusing assistance efforts. 
 
¶6. (C) The January 28 London Conference offers an opportunity 
to announce the plan to strengthen UNAMA, the SRSG and the 
SCR, and preferably would include endorsement of UN and NATO 
candidates for the positions.  This would allow the new SRSG 
and SCR to develop jointly their TORs and plan of action for 
improving coordination. The Conference is also a chance for 
Foreign Ministers to issue a clear message that nations are 
willing to coordinate (and to be coordinated) pursuant to an 
agreed, comprehensive approach, and to emphasize that full, 
meaningful coordination of civilian efforts, led by UNAMA and 
supported by SCR for NATO/ISAF countries, is critical to the 
success of our mission in Afghanistan. 
DAALDER