Gates' top military adviser, Admiral Michael Mullen, said he was not convinced that "we're winning it" in Afghanistan and that he had ordered the military to draw up a new strategy that encompasses insurgent safe havens in Pakistan.

But Gates said President George W. Bush's decision to draw down only 8,000 of the 146,000 troops from Iraq by February, and shift about half that number to Afghanistan "represents not only the right direction but the right course of action."

"I believe we have now entered that end game and our decisions today and in the months ahead will be critical to regional stability and our national security interests for the years to come," he told lawmakers.

Mullen, the chairman of the Joint Chiefs of Staff, called the decision to send 4,500 troops to Afghanistan "a good and important start" even though it fell short of commanders requests for three more brigades or about 10,000 troops.

"Frankly, I judge the risk of not sending them too great a risk to ignore," he said at the same hearing before the House Armed Services Committee.

Mullen said he has commissioned "a new, more comprehensive military strategy for the region that covers both sides of that border.

"I'm not convinced we're winning it in Afghanistan. I am convinced we can," he said.

Gates acknowledged the rising insurgent challenge in Afghanistan, but he warned that risks of reversals remain in Iraq despite progress on the security front.

He worried that the gains made have "the potential of overriding a measure of caution borne of uncertainty."

"The planned reductions are an acceptable risk today that also provide for unforeseen circumstances in the future," he said.

"The reductions also preserve a broad range of options for the next commander-in-chief who will make his own assessment after taking office in January," he said.

"As we proceed deeper into the end game, I would urge our leaders to implement strategies that while steadily reducing our presence in Iraq also take into account the advice of our commanders," he said.

Gates added, however, that the United States should expect to stay involved in Iraq for "years to come, although in changing and increasingly limited ways."

In Afghanistan, Gates said, "persistent and increasing violence resulting from an organized insurgency is, of course, our greatest concern."

Bush decided to send a marine battalion and a combat brigade to Afghanistan "in response to resurgent extremism and violence reflecting greater ambition, sophistication and coordination," he said.

Mullen said US military leaders initially disagreed on the best course of action, but ultimately compromised and arrived at a consensus in favor of modest troop cuts in Iraq and a smaller boost in forces in Afghanistan.

"That said, General McKiernan has asked for three more brigades, and it's going to be a while before we get them there," Mullen said, referring to General David McKiernan, the top US commander in Afghanistan.

Gates said "additional forces alone will not solve the problem," and both he and Mullen emphasized the need for greater economic and political development and better organized international support.

They said insecurity and violence will persist in Afghanistan until the insurgency is deprived of safe havens in Pakistan, but Gates suggested that the United States wanted to avoid confrontation with Islamabad.

"During this time of political turmoil in Pakistan, it is especially critical that we maintain a strong and positive relationship with the government, since any deterioration would be a setback for both Pakistan and Afghanistan," he said.

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