Security vortex: warlords and nation building.

• Author: Mills, Greg
• Position: Afghanistan

Given the extensive discussion in recent issues of The National Interest both about nation-building and about Afghanistan (including contributions by Brent Scowcroft, Sandy Berger, Zalmay Khalilzad and, more recently, John Hulsman and Alexis Debat), we wanted to offer our own observations.

It is very easy to draw up reconstruction plans that look quite impressive on paper. When confronted by Afghanistan's veneer-thin human resources, shifting political alliances and abject poverty, many of these proposals end up being dead on arrival. So we all have to get real. Reconstruction efforts must benefit the population, not just international consultants and conference habitues. In a rural population heavily dependent on agriculture, doing so requires a narrowly targeted focus on projects with the greatest economic multiplier effect: roads, water and power.

One point missing from the discussion about the linkages between security and development so far has been mention of the ink spot strategy. Employed successfully by the British in Malaya fifty years ago and given more recent prominence by the former army officer and American academic Andrew Krepinevich, it involves focusing military effort not on hunting down the enemy, but instead securing key centers and improving conditions there so markedly that you eliminate support for an insurgency. Success then spreads slowly outwards as if from an expanding ink spot (hence the designation).

In Afghanistan, the importance of filling those "ungoverned spaces" where the Taliban has been undergoing a revival has been promoted by General David Richards, the British Commander of the current 36-nation NATO-led International Security Assistance Force (ISAF).

But spreading General Richards' ink spots--now labeled Afghan Development Zones (ADZs)--of stability and prosperity will require focus of effort and focus of force. There is a logical sequence of events to this strategy: First, the army goes in and cleans out areas. Second, they maintain a presence to ensure security of extant development projects by embedding security to the local army and police forces and through ISAF and the coalition's 23 provincial reconstruction teams (PRTs) dotted around the country. Third, they also employ the PRTs, among other means, to rollout concentrated spending on development projects which have a key economic and social multiplier value, such as bridges and roads (for trade) or wells and clinics (for well-being). Fourth, the foreign military offers a quick reaction spine as a guarantee against insurgent activity. Fifth, the military plays its part in ensuring top-down government-donor coordination in synch with Kabul's overall long-term development strategy.

In essence, the ink spot strategy might best be explained as being akin...