	The Situation Before September 11, 2001

Even before the current crisis, Afghanistan had suffered twenty-two years of war, which included a long Sovietoccupation,followed by civil war, and, beginning in 1996, harsh Taliban rule in most of the country. These factors, in combination with aseveredrought over the last three years, produced enormous human suffering in Afghanistan. (3)
The United States has been the largest provider of humanitarian assistance to the people of Afghanistan through itscontributions to the UNHCR, other agencies, and NGOs. Plans for Security

The International Security Assistance Force. It is anticipated that a total of 2,500 Afghans will be trained by the endof 2002. Current Operating Environment

The humanitarian needs and support required for a recovery in Afghanistan must be understood in the contextof thecontinuing vast numbers of refugees and IDPs, the variations among the regions in which they are located, and thepoliticaland security situation throughout the country. Population Movements

Population movements continue in and out of and within Afghanistan. Food Security

Afghanistan has had three years of drought, although there have been periods of precipitation in different parts of thecountry. UNDP and World Bankofficials estimate that the reconstruction of Afghanistan will require $1.7 billion in the first year, $10 billion over5 years,and $15 billion in the next decade. The International Conference on Reconstruction Assistance to Afghanistan held in Tokyo on January 21 and 22, 2002 (15) gave the then AIA a chance to demonstrate its commitment to the next phase of Afghanistan's recovery and theinternational donor community an opportunity to come together and formally demonstrate support for this initiative. Thesixty-one countries and twenty-one international organizations represented pledged $1.8 billion for 2002. (16) The United States hopes that other nations will carry a greaterportion of the costs for reconstruction andpeacekeeping since it has paid for most of the military campaign against the Taliban and Al Qaeda. U.S. Reconstruction Assistance. As U.S. troops make headway on finishing the Afghan phase of the war,thereare many questions about ensuring a secure environment for reconstruction. What role should the United States play in drug enforcement and the war on terrorism inside Afghanistan? Oversight and Coordination of Aid Projects

In order to keep the support of the international community, reconstruction efforts need to demonstrate the effective use offunds and their distribution. It is also partof abroader effort to include Afghan organizations in the recovery and reconstruction effort which will be important forthetransfer of responsibilities and capabilities in the future. So far, there is little development-type aid in the U.S. pledge, although some is focused on quick impact programs,long-term agriculture, women and children, and education. While the hunt for the Taliban and Al Qaeda continues, the potential formistakentargets remains a risk.
For the past 22 years, Afghanistan has been embroiled in conflict. Humanitarian assistance programs have been a key partof the overall multilateral effort to relieve human suffering and assist refugees and internally displaced persons(IDPs). Since September 11, 2001, while actions are still being taken to eliminate Taliban and Al Qaeda forces and otherssupporting terrorism, the needs have only become more urgent.
The case of Afghanistan may present a special category of crisis, in which the United States and others play a significantrole in the war on terrorism while simultaneously providing humanitarian and reconstruction assistance to theinnocentcivilians caught in the crossfire. Moreover, the conditions in Afghanistan represent a challenging mix ofinfrastructuredestruction, ongoing security concerns, and humanitarian needs requiring an immediate response. So far, theinternationalcommunity has recognized that large amounts of aid and resources will be required in the reconstruction effort. Inaddition,a long-term commitment will be necessary to ensure a stable, democratic Afghanistan emerges and will not fall preyto thetwin evils of drugs and terrorism.
While continuing to hunt down Al Qaeda forces within Afghanistan, transitional and reconstruction assistance has alsomoved ahead. An examination of the progress of reconstruction efforts and aid priorities in the last year reveals thecomplexity of the tasks ahead and raises questions about the the long-term role to be played by the United States. Congress may continue to look at the contributions by and responsibilities of key allies partnering in the effortswithinAfghanistan. The current operating environment demonstrates ongoing challenges for the government and peopleofAfghanistan and for the international community, such as security issues, population movements, food security,environment and infrastructure, health, and education. While the international donors conference in January 2001indicateda strong willingness on the part of the international community to assist in the restoration of Afghanistan, it alsorevealedthe cost could amount to more than $15 billion over the next decade. A total of $1.8 billion was pledged for 2002,althoughsome pledges have not yet been fulfilled.
The many moving parts of the war on terrorism coupled with the uncertainty of developments within Afghanistan makelong-term planning and exit strategies impossible at this stage. Still, of potential, immediate interest to Congressaresecurity concerns, support of the transitional administration, oversight and coordination of aid projects, and theplight ofwomen and children.