A legitimate Afghan partner means a legitimate Afghan election

A significant factor in the decision about what strategy to pursue in Afghanistan is whether or not there is a competent and legitimate government in place. As the US learned in Vietnam, siding with a corrupt government does not advance the cause. Hamid Karzai came to power several following the toppling of the Taliban government to much fanfare. However, his administration has been plagued with corruption and he was reelected as President of Afghanistan in a process that was plagued by ballot stuffing and other means of electoral fraud.

Peter W. Gralbraith was dismissed as the United Nations Deputy Special Representative for Afghanistan in September by UN Secretary-General Ban Ki-moon. He had held the position since March and had serious disagreements with the UN’s Special Representative, Kai Eide, over the fraud in the 2009 Afghan presidential election.

He wrote in Sunday’s Washington Post:

Afghanistan's presidential election, held Aug. 20, should have been a milestone in the country's transition from 30 years of war to stability and democracy. Instead, it was just the opposite. As many as 30 percent of Karzai's votes were fraudulent, and lesser fraud was committed on behalf of other candidates. In several provinces, including Kandahar, four to 10 times as many votes were recorded as voters actually cast. The fraud has handed the Taliban its greatest strategic victory in eight years of fighting the United States and its Afghan partners.

The election was a foreseeable train wreck. Unlike the United Nations-run elections in 2004, this balloting was managed by Afghanistan's Independent Election Commission (IEC). Despite its name, the commission is subservient to Karzai, who appointed its seven members. Even so, the international role was extensive. The United States and other Western nations paid the more than $300 million to hold the vote, and U.N. technical staff took the lead in organizing much of the process, including printing ballot papers, distributing election materials and designing safeguards against fraud.

Part of my job was to supervise all this U.N. support. In July, I learned that at least 1,500 polling centers (out of 7,000) were to be located in places so insecure that no one from the IEC, the Afghan National Army or the Afghan National Police had ever visited them. Clearly, these polling centers would not open on Election Day. At a minimum, their existence on the books would create large-scale confusion, but I was more concerned about the risk of fraud.

Local commission staff members were hardly experienced election professionals; in many instances they were simply agents of the local power brokers, usually aligned with Karzai. If no independent observers or candidate representatives, let alone voters, could even visit the listed location of a polling center, these IEC staffers could easily stuff ballot boxes without ever taking them to the assigned location. Or they could simply report results without any votes being in the ballot boxes.

Along with ambassadors from the United States and key allies, I met with the Afghan ministers of defense and the interior as well as the commission's chief election officer. We urged them either to produce a credible plan to secure these polling centers (which the head of the Afghan army had told me was impossible) or to close them down. Not surprisingly, the ministers -- who served a president benefiting from the fraud -- complained that I had even raised the matter. Eide ordered me not to discuss the ghost polling centers any further. On Election Day, these sites produced hundreds of thousands of phony Karzai votes.

At other critical stages in the election process, I was similarly ordered not to pursue the issue of fraud. The U.N. mission set up a 24-hour election center during the voting and in the early stages of the counting. My staff collected evidence on hundreds of cases of fraud around the country and, more important, gathered information on turnout in key southern provinces where few voters showed up but large numbers of votes were being reported. Eide ordered us not to share this data with anyone, including the Electoral Complaints Commission, a U.N.-backed Afghan institution legally mandated to investigate fraud. Naturally, my colleagues wondered why they had taken the risks to collect this evidence if it was not to be used.

In early September, I got word that the IEC was about to abandon its published anti-fraud policies, allowing it to include enough fraudulent votes in the final tally to put Karzai over the 50 percent threshold needed to avoid a runoff. After I called the chief electoral officer to urge him to stick with the original guidelines, Karzai issued a formal protest accusing me of foreign interference. My boss sided with Karzai.

Afghanistan is deeply divided ethnically and geographically. Both Karzai and the Taliban are Pashtun, Afghanistan's dominant ethnic group, which makes up about 45 percent of the country's population. Abdullah Abdullah, Karzai's main challenger, is half Pashtun and half Tajik but is politically identified with the Tajiks, who dominate the north and are Afghanistan's second largest ethnic group. If the Tajiks believe that fraud denied their candidate the chance to compete in a second round, they may respond by simply not recognizing the authority of the central government. The north already has de facto autonomy; these elections could add an ethnic fault line to a conflict between the Taliban and the government that to date has largely been a civil war among Pashtuns.

Since my disagreements with Eide went public, Eide and his supporters have argued that the United Nations had no mandate to interfere in the Afghan electoral process. This is not technically correct. The U.N. Security Council directed the U.N. mission to support Afghanistan's electoral institutions in holding a "free, fair and transparent" vote, not a fraudulent one. And with so much at stake -- and with more than 100,000 U.S. and coalition troops deployed in the country -- the international community had an obvious interest in ensuring that Afghanistan's election did not make the situation worse.

President Obama needs a legitimate Afghan partner to make any new strategy for the country work. However, the extensive fraud that took place on Aug. 20 virtually guarantees that a government emerging from the tainted vote will not be credible with many Afghans.

As I write, Afghanistan's Electoral Complaints Commission is auditing 10 percent of the suspect polling boxes. If the audit shows this sample to be fraudulent, the commission will throw out some 3,000 suspect ballot boxes, which could lead to a runoff vote between Karzai and Abdullah. By itself, a runoff is no antidote for Afghanistan's electoral challenges. The widespread problems that allowed for fraud in the first round of voting must be addressed. In particular, all ghost polling stations should be removed from the books ("closed" is not the right word since they never opened), and the election staff that facilitated the fraud must be replaced.

Afghanistan's pro-Karzai election commission will not do this on its own. Fixing those problems will require resolve from the head of the U.N. mission in Afghanistan -- a quality that so far has been lacking.

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