The fact is the UN is more than just the Security Council and the General Assembly. A large number of specialized agencies take the lead, for example, in electoral assistance management, in development planning, in humanitarian assistance and relief, in refugee relocation, and in drug interdiction, control, and management. There is a wealth of expertise. The UN is doing it. The UN has done it and it has done it successfully.
Our challenge, quite frankly, is to wrap our heads around that fact and recognize that there is a track record and there is a set of institutions that are worth investing in and that we can work with.
NATO is not in what I would call the state-building, reconstruction, peace-building business. It's a collective defence organization that has evolved into a security intervenor, and it can do it well, provided it sticks to that mission. But the problem in a place like Afghanistan is that this mission has changed; it has evolved. It's right now rather unclear exactly what the mission is. Our armed forces have been asked to do all kinds of things, and NATO has been asked to do all kinds of things, for which it, quite frankly, doesn't have a mandate or the capacity.