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Cablegate: The Details of Evolving the Prt Model in Afghanistan

VZCZCXRO6994
RR RUEHPW
DE RUEHBUL #2970/01 3150417
ZNR UUUUU ZZH
R 100417Z NOV 08
FM AMEMBASSY KABUL
TO RUEHC/SECSTATE WASHDC 6104
RHEHAAA/NATIONAL SECURITY COUNCIL WASHINGTON DC
RUEHC/DEPT OF AGRICULTURE WASHINGTON DC 0109
INFO RUCNAFG/AFGHANISTAN COLLECTIVE
RUEKJCS/OSD WASHINGTON DC
RUEKJCS/JOINT STAFF WASHINGTON DC
RHMFIUU/HQ USCENTCOM MACDILL AFB FL
RUEAIIA/CIA WASHINGTON DC
RHEFDIA/DIA WASHINGTON DC
RHMFIUU/DEPT OF JUSTICE WASHINGTON DC
RHEFHLC/DEPT OF HOMELAND SECURITY WASHDC

UNCLAS SECTION 01 OF 03 KABUL 002970

DEPARTMENT FOR SCA/FO, SCA/A, EUR/RPM
STATE PASS TO AID FOR ASIA/SCAA
AGRICULTURE FOR EATON
NSC FOR WOOD
OSD FOR WILKES
CENTCOM FOR CG CSTC-A, CG CJTF-101 POLAD

SENSITIVE
SIPDIS

E.O. 12958: N/A
TAGS: PGOV PREL ETRD EFIN AF MOPS KDEM PINS
SUBJECT: The Details of Evolving the PRT Model in Afghanistan

REF: KABUL 2784

1. (SBU) Summary. Reftel lays out the Mission's ideas for evolving
the PRT model in Afghanistan and expanding our civilian support for
Operation Enduring Freedom. This message provides a more in-depth
look at the structures outlined in Kabul 2784, detailing the new
initiatives and tailored growth we propose, and the accompanying
policy issues. As part of this proposal, we advocate evolving our
presence at the Italian-led PRT in Herat into a Regional Embassy
Office. This message establishes the staffing we need to help
create transformational effects; decisions on the geographical
placement of new civilians will be made in consultation with the
military. A key concept behind this proposal is devolving authority
and financial resources downrange to enable the new personnel to
implement strategic programs in support of Mission objectives.

2. (SBU) We recommend expanding our civilian presence with
particular emphasis in the provinces and districts. In addition to
existing PRTs with U.S. representation, we propose to: ensure all
existing PRTs have State, USAID and USDA representation; establish
Provincial Governance and Development Offices with economic,
development, and agriculture experts in three of the more stable
provinces of RC-East; enhance U.S. civilian representation at
current U.S. Brigade Task Forces and provide U.S. civilian staff to
new U.S. Brigade Task Forces as they are stood up; establish four
new U.S. PRTs in priority locations; establish regional platforms
for USAID technical offices at the Regional Command headquarters;
create District Reconstruction Teams (DRTs) to provide
capacity-building support to district-level governance and
stabilization; form Fly-Away Teams to seize counterinsurgency (COIN)
windows of opportunity; and establish specialized Tribal Engagement
Teams. The total number of new American positions proposed is 215,
comprised of 82 State, 105 USAID and 28 USDA positions. End
summary.

----------------
New Initiatives
----------------

3. (SBU) New PRTs. This proposal incorporates support for civilian
PRT staffing in three provinces where the U.S. military (or
coalition forces) may establish a presence, including Dai Kundi and
Nimroz. Currently, the Parwan/Kapisa PRT exists as a combined PRT
based at Bagram Air Field, with permanent USAID and USDA positions;
CJTF-101 anticipates splitting the responsibilities to create PRTs
in each province, and we propose to support each PRT with State,
USAID and USDA positions. Finally, we recommend creating a PRT in
Kabul city: USAID is reviewing its Mission Strategy, and a Kabul
PRT would enable USAID to enhance its Kabul-based urban services
programs and initiatives in the world's fastest growing city.

4. (SBU) REO Herat. We advocate evolving our presence at the
Italian-led PRT in Herat into a Regional Embassy Office (REO), led
by a Principal Officer (re-hatting the State PRT Officer) with two
political/economic positions and one each for consular, public
diplomacy, diplomatic security, rule of law, and USAID. These eight
positions would all be FSOs. The USAID representative would
complement the work of the eight USAID representatives we propose
locating at RC-West, also in Herat.

5. (SBU) Community/tribal engagement. In addition to the Subject
Matter Experts (SMEs) described in reftel, we recommend adding
tribal/cultural engagement experts to extend and deepen our
understanding of and engagement with tribal and traditional
leadership structures. These experts would also play supportive
roles in conflict transformation, peace building efforts and
improving essential linkages between the tribes and local formal
government institutions. We would build six Tribal Engagement
Teams, with a total staffing of six State and 12 USAID American
positions. We would anticipate using these experts principally in
the Pashtun areas of RC-East and RC-South, and foresee the need to
be flexible about their locations to respond to changing needs over
time. They would operate out of existing U.S. platforms (such as
brigade headquarters, PRTs, DRTs, etc.) as circumstances warrant.


KABUL 00002970 002 OF 003


6. (SBU) District Reconstruction Teams. We recommend creating 20
DRTs, each with an American and Afghan representative for State and
USAID. DRTs would provide localized platforms for civilians to
engage and mentor sub-provincial GIRoA governance structures as well
as local and community leaders. The DRTs would be located in
"tipping point" districts in provinces with multiple population
centers requiring consistent attention, or where a critical window
of opportunity exists for the DRT to effectively target attention on
a population center. As such, the locations of the DRTs will depend
largely on joint assessment and consultation among U.S.
provincial-level civilian, military and GIRoA leadership. Each DRT
would be established after a joint decision by the Ambassador and
COMUSFOR-A, or their designees, based on consultations with Bagram.

7. (SBU) Fly-Away Teams. We would establish four Fly-Away Teams,
each with State and USAID representatives; USDA would staff as
required from in-country staff. Drawing on the experience of OTI
with quick impact, rapid disbursing and limited time on site,
Fly-Away Teams would be modeled after USAID Office of Foreign
Disaster Assistance (DART) Teams. These specialty Teams would
closely follow on military operations after areas are cleared and
moving into the "hold" phase. These teams would rapidly assess
needs and organize community programs to provide essential services
and community action programs to forward COIN efforts and foster
stability in communities. Fly-Away Teams would have access to rapid
program development and implementation mechanisms in order to have
immediate positive impact.

8. (SBU) Rule of Law. An important component of increased American
civilian support should be rule of law (ROL) expertise. We see
inherent value in creating sub-national positions with
responsibilities for shaping and implementing U.S. and international
efforts for ROL comprehensively throughout the country to advance
our strategic goals. These officers could, for example, mentor
Afghan provincial officials on the importance of ROL, help the
military design ROL components into CERP building efforts (e.g.,
include a courthouse with district center "green zones") and support
"circuit rider" judges for provinces with inadequate numbers of
judicial officials. We propose placing ROL expertise at targeted
U.S.-led PRTs, at each of the current U.S. brigades, and in Bamyan,
Herat, Kandahar, Kunduz, and Mazar-e Sharif to support key non-U.S.
led PRTs located near Provincial Justice Coordination Mechanism
(PJCM) offices. ROL experts may be INL or Department of Justice
staff, FSOs, or LNAs.

---------
Staffing
---------

9. (SBU) Kabul. We propose adding State, USAID and USDA PRT
positions at both the embassy and the Kabul PRT. In addition, we
would need to incorporate new Mission support and management
positions into existing Mission ICASS structures in order to support
the civilian surge in the field, including an increase in RSO
staffing. As mentioned in reftel, we would also need added housing
and office space and an increase in air assets.

10. (SBU) RC-Headquarters and U.S. Brigades. At each of the four
Regional Commands, USAID proposes establishing eight-person
platforms consisting of technical office representatives, a
supervisor and a support position. In addition to current State
positions, we propose supporting current U.S. Brigades with a rule
of law expert, a USAID representative and a USDA position. And we
propose supporting each incoming U.S. Brigade with four State
positions and four USAID Technical Advisors. As is the case with
coalition-led PRTs (see para 13 below), we will need to reach an
understanding with allies regarding support for additional positions
at coalition-led Regional Commands.

11. (SBU) Provincial Level. We would ensure all existing PRTs have
State, USAID and USDA representation. In Nangarhar, Bamyan and
Panjshir, we would boost our American presence and establish
Provincial Governance and Development Offices to ensure that greater
economic/development focus is brought to bear on these more stable
provinces (this would supplement, not replace, the PRTs, which

KABUL 00002970 003 OF 003


continue to have important security, civil affairs, ADT and other
related functions). At targeted non-U.S.-led PRTs, State would add
a second American position. State, USAID and USDA would each create
one American position at each of the potential new PRTs in Dai
Kundi, Nimroz and Parwan. The Kabul PRT would consist of one State
and two USAID positions.

12. (SBU) Staffing Mechanisms. In terms of FSO vice LNA positions,
State and USAID would like to integrate FSOs throughout the country
to mentor/supervise/manage LNA hires. Our proposal calls for
approximately 56% FSOs for State, and approximately 30% FSOs for
USAID. The total number of new positions proposed is 82 for State,
105 for USAID and 28 for USDA. We are forwarding to SCA a detailed
breakdown of our staffing proposal, including locally-engaged staff
(LES) positions.

--------------
Policy Issues
--------------

13. (SBU) MOU with coalition allies. In order to take full
advantage of the additional U.S. investment in PRTs, we will need to
pin down the responsibilities of host governments at coalition-led
PRTs. Absent codification of issues including force protection and
life support, our allies may not be prepared to support an increased
civilian presence. As a matter of policy, we have recommended
against creating bilateral MOUs. To establish an increased civilian
presence on a sound, regularized footing, we recommend that
Washington establish a standard MOU with our coalition partners,
detailing payment for specific services at PRTs. We request
Washington advise on the way ahead for an MOU.

14. (SBU) In order for our civilian representatives in the field to
be most effective, we will need additional resources for these
positions. We will devolve authority and financial resources
downrange to enable the new personnel to implement strategic
programs in support of Mission objectives.

15. (SBU) We recognize that these proposals entail significant
force and infrastructure implications for the military.
Nonetheless, we believe these proposals are consistent with the
level of effort to which we are committed in Afghanistan and are key
to conducting a successful counter-insurgency campaign.

WOOD

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