Canada in Afghanistan: Military & Development Roles

Jay Makarenko — Thu, 29 Nov 2007 14:03:31 -0700

Canada has played an active role in Afghanistan, from both a military and development perspective, since the United States-led removal of the Taliban regime began in fall 2001. Over the years, Canada’s role in Afghanistan has become a significant issue – both in Canada’s domestic affairs and vis-à-vis its international relations. Accordingly, this article provides an overview of Canadian military and development activities in Afghanistan between 2001 and 2007.

Introduction to Canada’s Role in Afghanistan

Overview of Afghan politics and Canadian involvement

Canada’s Military Role in Afghanistan

Nature and duration of Canada’s military involvement

Canada’s Development Role in Afghanistan

Political, social, and economic development initiatives

Sources and Links to More Information

List of article sources and links to more on this topic

Introduction to Canada’s Role in Afghanistan

Overview Afghan politics and Canadian involvement

2001 US Invasion of Afghanistan

On October 2, 2001, the United States, in cooperation with the United Kingdom and the Afghanistan Northern Alliance, initiated the war in Afghanistan. The US operations in Afghanistan were a response to the September 11, 2001 terrorist attacks on the World Trade Center in New York City – attacks that were undertaken by the terrorist organization al-Qaeda and its leader Osama bin Laden. Afghanistan, at that time, was ruled by the Taliban, an Islamic fundamentalist group which provided safe haven and bases of operation for al-Qaeda and bin Laden. The stated purposes of the US invasion were to remove the Taliban regime in Afghanistan, capture bin Laden, and destroy al-Qaeda.

The US-led invasion led to the defeat of the Taliban regime, while removing Afghanistan as a save haven for al-Qaeda operations. US forces, however, were unable to capture bin Laden, the al-Qaeda leader. Moreover, since their initial defeat, the Taliban forces since mounted an insurgency in Afghanistan, in an attempt to disrupt foreign initiatives in the country and eventually return it to Taliban rule.

For more information on the war in Afghanistan:

PBS: Afghanistan and the War on Terror

Canada did not play a major role in the initial invasion of Afghanistan. However, a small Canadian naval task force was deployed to the Persian Gulf in October 2007 as part of a larger US naval group which acted to support US operations in Afghanistan.

Establishment of a New Afghan Government

Following the invasion of Afghanistan and the defeat of the Taliban, Afghan factions met in Bonn, Germany under the auspices of the United Nations to map out their country’s future. This meeting led to the signing of the Bonn Agreement on December 5, 2001, which established a provisional plan for governing the country. Under the Bonn Agreement, an interim government and constitution was established, as well as a commitment to hold democratic elections in 2004. In June of 2002, Hamid Karzai was chosen leader of the interim government; he was subsequently elected President in 2004 following general democratic elections. (He continues to serve in that position, as of September 2007.)

Defence and Security in Afghanistan

While the Afghan government is autonomous, in the sense that it is democratically elected, it nevertheless remains highly dependent upon foreign nations. This is particular true in the area of defence and security. Since the 2001 invasion, domestic Afghan military and police forces have been unable to adequately secure the country from internal and external threats (including the Taliban insurgency). As such, foreign militaries have been providing security in Afghanistan until domestic forces are able to take over.

Originally this security role was predominately performed by the United States. Over time, however, responsibility has been transferred to other nations. In 2001, the United Nations Security Council authorized the creation of the International Security Assistance Force (ISAF) to conduct operations in Afghanistan. ISAF is a multi-national military force led by the North Atlantic Treaty Organisation (NATO). It is important to note that while ISAF is commanded by NATO and its forces are predominately from NATO members, some non-NATO nations do contribute to ISAF. Originally, ISAF was mandated to provide security only in the Afghan capital of Kabul. Since then, however, ISAF’s area of operation has been expanded to include the whole country.

For more information on ISAF operations in Afghanistan:

Canada has contributed substantial military forces to Afghanistan since the initial defeat of the Taliban regime, first in cooperation with US forces and later in conjunction with ISAF operations. As of September 2007, a large contingent of Canadian military personnel is deployed in Afghanistan, providing basic security and defence roles. Since Canadian military operations began in 2002, 71 Canadians have been killed in the line of duty, including one diplomat (CBC, August 30, 2007).

See the Canada’s Military Role in Afghanistan section of this article for more information on Canadian military operations in Afghanistan.

Afghanistan Reconstruction and Development

The Afghan government also relies heavily on foreign countries in its reconstruction and development initiatives. This extends to a range of areas, including the development of political and legal institutions, the promotion of health and education services, the reconstruction of basic infrastructure, and the rehabilitation of the national economy.

Foreign aid to Afghanistan comes in several different forms. On the one hand, there are several non-governmental agencies operating throughout Afghanistan in support of reconstruction and development. These are private groups, such as the Red Cross, which pursue their own aid initiatives largely independent of government funding and control (although some cooperation does exist). In addition, there are a number of governmental agencies operating in Afghanistan, which include groups that are directly funded and controlled by governments. These include agencies associated with international organizations, such as the United Nations, as well as those associated with individual nations.

A key component of foreign governmental aid in Afghanistan is the Provincial Reconstruction Teams (PTR). These are small groups of civilian and military specialists which are assigned to oversee reconstruction and developmental projects in particular regions of Afghanistan, and which are backed by national and international security forces. These groups were originally built and operated by the United States. Following NATO involvement in Afghanistan, however, command of the PTRs was transferred to other nations participating in the International Security Assistance Force (ISAF).

In this context, the Government of Canada has played a significant large role, providing personnel, technical assistance, and financial aid in support of political, social, and economic development. A number of Canadian agencies participate in these initiatives, including the Canadian International Development Agency (CIDA), Foreign Affairs and International Trade Canada , the Royal Canadian Mounted Police (RCMP), and the Department of National Defence.

See the Canadian Non-military Role in Afghanistan section of this article for more information on Canadian assistance in the reconstruction of Afghanistan.

2006 Afghanistan Compact

In February 2006, approximately 40 countries, including Afghanistan, signed the Afghanistan Compact, the successor to the Bonn Agreement (see above). The Compact provides the framework for international community initiatives in Afghanistan for the period 2006-2011, with the overarching purpose of creating conditions of peace and security for the Afghan people through security, good governance and the rule of law, and social and economic development. The Compact, in effect, sets out the general parameters and goals of international efforts in the country.

For more information on the Afghanistan Compact:

Afghanistan National Development Strategy: The Afghanistan Compact

The Government of Canada was a contributor to, and signatory of, the Compact. Under the agreement, Canada committed to contributing to Afghanistan’s rehabilitation through to February 1, 2011. Canada’s contribution during this period may come in the form of military assistance or non-military aid.

For more information on Canada and the Afghanistan Compact:

Government of Canada: Canada and the Afghanistan Compact

Canada’s Military Role in Afghanistan

Nature and duration of Canada’s military involvement

Overview of Canada’s Military Contribution

Canadian Forces personnel were first deployed to Afghanistan in 2002 when a battle group of the Princess Patricia’s Canadian Light Infantry was sent to the Afghan city of Kandahar for six months. The role of this Light Infantry unit was to assist multi-national forces in Operation Enduring Freedom, a US-led offensive against Taliban and al-Qaeda elements remaining in Afghanistan.

As of August 2007, Canadian Forces in Afghanistan, referred to as Joint Task Force Afghanistan, totalled approximately 2,500 (Department of National Defence, 2007). Moreover, Canadian Forces activities were divided into three main missions: Operation Athena, Operation Archer, and Operation Argus (see below for mission details). All current Canadian Forces operations in Afghanistan are conducted with the consent of the Afghan government and are guided by the objectives and parameters set out in the 2006 Afghanistan Compact.

See the Introduction to Canada in Afghanistan section of this article for more on the Afghanistan Compact.

Between 2002 and 2007, approximately 13,500 Canadian soldiers have served in Afghanistan on a rotating basis (CBC, June 27, 2007). Of that number, more than 70 Canadian Forces personnel have been killed in the line of duty (in addition to one diplomat) (CBC, August 30, 2007). Between 2002 and March 2007, the financial cost of the Canadian military mission totalled $2.6 billion – a cost which is projected to reach $4.3 billion by the planned end of the military mission in February 2009 (CBC, June 27, 2007).

Roles of the Canadian Forces in Afghanistan

According to the federal Department of National Defence, the general objectives of Canadian Forces operations in Afghanistan are to (Department of National Defence, 2007):

Provide the people of Afghanistan with the hope for a brighter future by establishing the security necessary to promote development and an environment that is conducive to the improvement of Afghan life;
Conduct operations in support of Afghan National Security Forces;
Help strengthen and enhance Afghan Governance capacity;
Help extend the authority of the Government of Afghanistan in the South;
Facilitate the delivery of programs and projects that support the economic recovery and rehabilitation of Afghanistan; and
Assist in addressing humanitarian needs of Afghans by supporting Canadian governmental organizations and non-governmental organizations whose efforts meet Canada’s objectives.

In meeting these objectives, the Canadian Forces perform a number of different tasks. These include (but are not limited too) providing regular security for the Afghan population and foreign nationals working in Afghanistan; conducting combat operations against anti-government elements (such as the Taliban); training and leading Afghan security and military personnel; providing advice on security issues to the Afghanistan government; decommissioning weaponry and armaments left over from previous Afghan wars; and distributing humanitarian aid in the country.

Operation Athena

Of the three Canadian Forces missions in Afghanistan, Operation Athena is by far the largest. First introduced in 2003, this Operation represents Canada’s contribution to the NATO-led International Security Assistance Force (ISAF). Since its inception, the nature of Operation Athena has changed significantly, due in large part to shifts in ISAF responsibilities and areas of operation.

Originally, Operation Athena was associated with ISAF’s mission in the Afghan capital of Kabul. Under this mission, ISAF was responsible for providing security and intelligence-gathering in the capital in support of the new Afghan government and international agencies. From the period 2003 to 2005, Canada contributed a large military contingent to this mission, reaching a peak of approximately 2,000 Canadian Forces personnel in 2004 (CBC, November 9, 2006). Specific tasks performed by Canadians included regular street patrols, cooperation with Afghan and other international authorities on security issues, assistance in the operation of the Kabul International Airport, and assistance in the reconstruction of the Afghan national armed forces.

For more information on Operation Athena during the period 2003-2005:

Department of National Defence: Operation Athena – The Canadian Forces Participation in ISAF

The nature of Operation Athena changed dramatically in 2006, when responsibility for security in southern Afghanistan was transferred from the United States to the NATO-led ISAF. Canada, in turn, committed its military contribution in Afghanistan to this new ISAF mission. As a result, Canadian personnel under Operation Athena were transferred from the capital city of Kabul to southern Afghanistan, with their primary base located in the southern city of Kandahar. As of August 2007, approximately 2,500 Canadian Forces personnel served in the Kandahar phase of Operation Athena (Department of National Defence, 2007).

This change in mission has been significant. The capital of Kabul is a relatively safe and stable theatre of operation. In contrast, Kandahar and the southern region of Afghanistan is a much more volatile area, with increasing levels of Taliban activity. As a result, the mission of Canadian Forces personnel has shifted away from defensive operations in a relatively small urban area, to conducting full-fledged combat operations against anti-government elements across a large region. This, in turn, has led to a dramatic rise in Canadian casualties. From 2002 to 2005, eight Canadians were killed in Afghanistan. In 2006 and 2007, following the initiation of operations in Kandahar, 63 Canadians were killed (CBC, August 30, 2007).

For more information on Operation Athena and ISAF Operations post-2006:

Other Canadian Forces Operations

In addition to Operation Athena, Canada is involved in two further missions in Afghanistan. These missions are much smaller in size and are orientated towards military training and reconstruction efforts.

The first of these is Operation Archer, which is Canada’s contribution to the US-led Operation Enduring Freedom.The purpose of Operation Archer is to assist in the re-forming and rebuilding of Afghan security infrastructure, including the Afghan National Army and the Afghan National Police Force. As of August 2007, there were 30 Canadian Forces personnel assigned to Operation Archer, based primarily in the Afghan capital of Kabul (Department of National Defence, 2007).

For more information on Operation Archer:

Department of National Defence: Canadian Forces Operations in Afghanistan

The third main mission is Operation Argus, which is providing a team of strategic military planners to support the Government of Afghanistan. This team, formally referred to as the Strategic Advisory Team – Afghanistan (SAT – A), is embedded within Afghan governmental departments; it works closely with Afghan officials in the development of national defence strategies and programs of implementation. As of August 2007, there were 15 Canadian Forces personnel assigned to Operation Argus, in addition to a Canadian International Development Agency officer, advising on development issues (Department of National Defence, 2007).

For more information on Operation Argus:

Department of National Defence: Canadian Forces Operations in Afghanistan

It is also important to note that elements of Canada’s elite special operations unit, Joint Task Force Two (JTF2), have also operated in Afghanistan. JTF2 is proficient in counter-terrorist operations, surveillance, close protection, and other specialized military activities. The precise nature and duration of their operations in Afghanistan, however, is largely unknown.

Duration of Canada’s Military Role

Canada’s military presence in Afghanistan has been extended several times since the Canadian Forces were first deployed to the country. Canada’s first military mission, which was initiated in 2002 as part of the US-led Operation Enduring Freedom, was only intended to last six months. In 2003, however, the Canadian government, under Liberal Prime Minister Jean Chrétien, recommitted military personnel to Afghanistan under Operation Athena, which was only to last until August 2004. This Operation was later extended, until the summer of 2005, by Liberal Prime Minister Paul Martin.

In 2005, the Martin government re-committed Canadian Forces to Afghanistan, this time in support of the ISAF mission in southern Afghanistan. Under the Liberal government’s plan, the deployment in southern Afghanistan would begin in February 2006 and last up to one year in duration. In January 2006, however, a new government was formed under Conservative Prime Minister Stephen Harper. In May 2006, the Harper government extended the mission another two years, until February 2009, following a close vote in the House of Commons.

As of September 2007, the Canadian military role in Afghanistan is set to end in February 2009. However, it is not absolutely certain this will be the case. Canada continues to receive pressure from the United States and other NATO countries to maintain its forces in Afghanistan. Moreover, the Harper government has indicated its preference to keep troops in Afghanistan until the country is stabilized (CBC, March 13, 2006). Much, however, will depend on the outcome of the next federal election in Canada, and the level of support among Canadians when it comes to extending the military mission.

Canadian Development Role in Afghanistan

Political, social, and economic development initiatives

In addition to its military role in Afghanistan, the Government of Canada has also played a significant role in the reconstruction and development of the country. The following section offers an overview of Canada’s approach to development in Afghanistan, as well as a summary of some specific programs.

Overview of Canada’s Development Approach

The Government of Canada states that the general objective of its Afghan development initiatives is as follows:

“Canada is in Afghanistan at the request of the democratically elected government to help build a stable, democratic and self-sufficient society. Alongside the UN, NATO and our other partners, Canada has committed to help the people of Afghanistan realize their vision for a country that is secure and at peace with itself and its neighbours; economically self-sufficient; prosperous, with the capacity to deliver fundamental services such as water, health care and education; and governed according to the rule of law” (Government of Canada, Overview, 2007).

Here we see three key areas of development: political, social, and economic. On the political side, the goal is to create a stable and democratic society. This includes seeing Afghanistan achieve peace within the country and with its neighbours; promoting a democratic system of government; and governing according to the rule of law, rather than under a system where national and international law is disregarded or not enforced. On the social side, the primary task is to help the country provide fundamental services to its citizens, such as water, health care, and education. Finally, on the economic side, the goal is to help Afghanistan become economically self-sufficient and prosperous. The basic idea is the domestic Afghan economic should be able to provide for its citizens, rather than being economically dependent on foreign aid.

Also important to the nature of Canadian development initiatives is the Afghanistan Compact, detailed earlier. The Compact provides a framework for coordinating the work and resources of the Afghan government and its international partners, in addition to establishing expected results and timelines in the areas of security, development, and governance. The Government of Canada is a signatory of the Compact, and uses it as a foundation for its own development initiatives in Afghanistan.

See the Introduction to Canada in Afghanistan section of this article for more on the Afghanistan Compact.

Organization and Cost of Development Initiatives

In pursuing its developmental initiatives, the Government of Canada utilizes a broad range of departments and agencies. Foreign Affairs and International Trade Canada (with direction from the federal Cabinet) is responsible for the overall coordination and policy direction of Canadian initiatives. Other key government actors include the Department of National Defence, the Canadian International Development Agency, Correctional Service Canada, and the Royal Canadian Mounted Police (Government of Canada, Overview, 2007).

As of September 2007, the Government of Canada has committed a total of $1.2 billion for reconstruction and development in Afghanistan. This includes monies spent by the Government since the fall of the Taliban regime in 2001, as well as future monies committed by the government until 2011 (Government of Canada, Overview, 2007). In comparison, Canada is projected to spend approximately $4.3 billion on its military operations in the country for the period 2002 to 2009 (CBC, June 27, 2007).

Specific Development Programs

Since it began its development initiatives in 2001, the Canadian government has contributed to a broad range of specific programs. The following provides brief introductions to some of the programs to which Canada contributes (current to September 2007).

For a comprehensive and updated summary of Canadian development initiatives in Afghanistan:

Government of Canada: Rebuilding Afghanistan
Afghanistan Reconstruction Trust Fund: Established in 2002, the Afghanistan Reconstruction Trust Fund (ARTF) is one of the major instruments through which international aid dollars can be coordinated to fund priority services offered by the Afghan government. Canada’s contribution to the ARTF helps support the costs of daily operations of the government and contributes to two national programs for economic and social development: the national microcredit program and the National Solidarity Program.
Kandahar Provincial Reconstruction Team: In 2005, Canada assumed responsibility for the Kandahar Provincial Reconstruction Team (PRT). Over twenty PRTs operate throughout Afghanistan with the mandate of assisting the Afghan government in extending its authority, rebuilding the nation, and providing services to citizens. Canada’s 330-member PRT includes military, police, diplomatic, and development personnel, and is based in the city of Kandahar in southern Afghan province of Kandahar.

For more information on the Kandahar Provincial Reconstruction Team:

Government of Canada: The Kandahar Provincial Reconstruction Team
Department of National Defence: Kandahar Provincial Reconstruction Team
Justice/court system: Since 2002, Canadian assistance has supported capacity building in the Afghan justice system. This includes programs in support of the Supreme Court, the Attorney General’s Office and Ministry of Justice; training for judges, prosecutors, public defenders and court administrators; and legal aid programming (Government of Canada, Facts on the Ground, 2007).
Police services: Canada has participated in the reconstruction of Afghan police forces. This includes initiatives such as mentoring, training, funding salaries, building police stations, and providing equipment and uniforms. As of September 2007, 35 Canadian police trainers had been deployed to Afghanistan (Government of Canada, Facts on the Ground, 2007).
Correction services: Correctional Service Canada advisers have been deployed to Kabul to help professionalize prison and detention services with the goal of building a safe and humane prison administration with operations and practices that meet international standards (Government of Canada, Facts on the Ground, 2007).
Healthcare: Canada has assisted in the immunization of more than seven million Afghan children as part of a polio eradication initiative. A $5 million contribution made in October 2006 is supporting the further immunization of 350,000 children in Kandahar province. Women’s Wellness Diagnostic Kits were distributed by Canada’s Kandahar Provincial Reconstruction Team (PRT) to Kandahar University’s Medical Program. The PRT also donated medical supplies and linens to the Afghan National Police hospital in Kandahar (Government of Canada, Facts on the Ground, 2007).
Disarmament, Demobilization, and Reintegration: Prior to the US-led invasion of Afghanistan, the country had been at war for over 25 years. Consequently, one of the first measures taken was to demobilize the over 63,000 Afghan soldiers who had fought during the war. To this end, Canada has spent close to $21 million in support of this process since its involvement began in 2003. This funding is helping former Afghan soldiers reintegrate into civilian life, be it opening small shops, working on the destruction of mines, becoming teachers, or farming.

Sources and Links to More Information

List of article sources and links to more on this topic

Sources Used for this Article

“In the Line of Duty: Canada’s Casualties.” CBC. 30 August 2007. 04 September 2007. <http://www.cbc.ca/news/background/afghanistan/casualties/total.html>
“Afghanistan, By the Numbers.” CBC. 27 June 2007. 04 September 2007. <http://www.cbc.ca/news/background/afghanistan/bythenumbers.html>
“Timeline of Canada’s Involvement.” CBC. 9 November 2006. 04 September 2007. <http://www.cbc.ca/news/background/afghanistan/timeline.html>
“Operation Athena: The Canadian Forces Participation in ISAF.” Department of National Defence. 27 August 2004. 04 September 2007. <http://www.forces.gc.ca/site/newsroom/view_news_e.asp?id=1228>
“Backgrounder: Canadian Forces in Afghanistan.” Department of National Defence. 14 August 2007. 04 September 2007. <http://www.forces.gc.ca/site/newsroom/view_news_e.asp?id=1703>
“Overview of Canada’s Contribution to the International Mission in Afghanistan.” Government of Canada. July 2007. 04 September 2007. <http://geo.international.gc.ca/cip-pic/afghanistan/library/overview-en.aspx>
“Canada’s Contribution to the International Mission in Afghanistan – Facts on the Ground.” Government of Canada. July 2007. 04 September 2007. <http://geo.international.gc.ca/cip-pic/afghanistan/library/factsonground-en.aspx>

Links for More Information

Peace Keeping

Submit Your Questions for an Interview with Major General (Ret) Lewis Mackenzie

Canada in Afghanistan: Military & Development Roles

Introduction to Canada’s Role in Afghanistan

Overview of Afghan politics and Canadian involvement

Canada’s Military Role in Afghanistan

Nature and duration of Canada’s military involvement

Canada’s Development Role in Afghanistan

Political, social, and economic development initiatives

Sources and Links to More Information

List of article sources and links to more on this topic

Introduction to Canada’s Role in Afghanistan

2001 US Invasion of Afghanistan

Establishment of a New Afghan Government

Defence and Security in Afghanistan

Afghanistan Reconstruction and Development

2006 Afghanistan Compact

Canada’s Military Role in Afghanistan

Overview of Canada’s Military Contribution

Roles of the Canadian Forces in Afghanistan

Operation Athena

Other Canadian Forces Operations

Duration of Canada’s Military Role

Canadian Development Role in Afghanistan

Overview of Canada’s Development Approach

Organization and Cost of Development Initiatives

Specific Development Programs

Sources and Links to More Information