Civil-military Coordination in the Common Security and ... - ETC Graz

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Civil-military Coordination in the Common Security and Defence Policy of the European Union A Introduction In the European Security Strategy 1 (ESS) and its Implementation Report, 2 the member states (MS) of the European Union (EU) have publicly agreed that today’s security threats are not purely military. They also consented that today’s threats cannot be tackled by purely military means. 3 Rather, each response to a crisis or conflict, they argue, requires a mixture of instruments. Experience has indeed shown that the traditional sequence of military intervention followed by a civilian presence for reconstruction is not applicable anymore and that integrated concepts, which utilize all tools available already from the beginning are needed. 4 Such integrated approaches are in line with contemporary security concepts, like human security, which draw attention to the broadened scope of security threats and emphasize the need for more comprehensive approaches to tackle these threats. 5 The EU is often considered to be in a particularly good position to offer the right mix of instruments required for comprehensive crisis management. Javier Solana even believes that the comprehensive approach underpinning the Common Security and Defence Policy (CSDP) is its value added. 6 Yet, what progress has the EU made thus far to coordinate its civilian and military tools for crisis management? Civilmilitary Coordination (CMCO) is usually regarded as a demanding undertaking that entails numerous steps and contentious issues. A successful implementation of CMCO would, for instance, require a joint planning, a common doctrine and joint training, joint early warning, joint situation assessment and fact-finding, coordinated * Mag. iur. Markus Möstl is research fellow and doctoral student at the Institute of International Law and International Relations of the University of Graz, Austria. You may contact the author at: markus.moestl@uni-graz.at. The author would like to thank Sven Biscop for his valuable comments on an earlier draft of this paper which was presented at the 4th Graz Workshop on the Future of Security. 1 Council of the European Union, A secure Europe in a better world – the European Security Strategy, approved by the European Council held in Brussels on 12 December 2003 and drafted under the responsibilities of the EU High Representative Javier Solana. 2 Council of the European Union, Report on the implementation of the European Security Strategy – Providing security in a changing world, approved by the European Council held in Brussels on 11 and 12 December 2008 and drafted under the responsibilities of the EU High Representative Javier Solana. 3 The threats were identified as the proliferation of weapons of mass destruction, regional conflicts, state failure, but also include terrorism, organized crime, and the effects of climate change. 4 Margriet Drent/Dick Zandee, Breaking pillars. Towards a civil-military security approach for the European Union, Netherlands Institute of International Relations ‘Clingendael’, 2010, 2. 5 See, e.g., Commission on Human Security, Human Security Now, New York, 2003, 133; or Human Security Unit, Human Security in theory and practice, Application of the Human Security Concept and the United Nations Trust Fund for Human Security, United Nations, Office for the Coordination of Humanitarian Affairs, 6. 6 Javier Solana, Remarks at the conference ESDP@10: What lessons for the future, EUISS, Brussels, 28 July 2009. 31
Markus MÖSTL command and control arrangements, and arrangements for the sharing of information. 7 This contribution investigates the EU’s progress in CMCO by first reviewing the EU definition and conceptualization of CMCO in Section B. Section C analyzes the developments and achievements made for the institutionalization of CMCO before Section D discusses pertinent questions related to the EU’s capability development process. Section E gives a brief overview of practical experiences of CMCO gathered in Bosnia and Herzegovina (BiH) and Section F will offer some overall conclusions explaining why the EU still has to further extend its coordination efforts for comprehensive crisis management operations. B The CSDP Approach to Civil-military Coordination CMCO poses particularly high challenges for the EU. The institutional setup of the EU implies that not only civilian and military aspects of the CSDP have to be coordinated; it also means that the relevant activities of the European Commission, which usually address long-term needs, have to be coordinated with the more shortterm measures taken by the Council of the EU under the CSDP. 8 Indeed, the first conceptual work on CMCO took up the issue of inter-institutional coordination in 2001, when the European Commission and the Council of the EU shared their relevant experiences and made proposals on how to increase coordination and how to create synergies. 9 Since then, a range of documents has been approved dealing with CMCO on the strategic level within the CSDP. Most prominently, the Council adopted an action plan including a checklist for the improvement of CMCO. 10 This list comprises proposals to include coordination activities in the template for crisis management concepts, joint exercises and training, and also suggestions for improvements of the coordination on an institutional level in Brussels. A further document detailing the aims of CMCO claims that on the long run a “culture of coordination” should be developed for the civilian and military aspects of CSDP. 11 Building on a non-paper by the United Kingdom, Austria and Finland, which identifies key issue areas for the further development of CMCO, 12 a framework paper 7 Gustav Hägglund, EU's challenge to guarantee civil-military co-ordination in its future field operations, Helsinki, 20 September 2002. 8 This contribution, however, will mainly concentrate on CMCO in the CSDP. 9 Council of the European Union, Civil-military co-ordination, Doc. 12307/02, Brussels, 24 September 2002. 10 Council of the European Union, Action plan for the further strengthening of civil-military co-ordination in EU crisis management, Doc. 13480/1/02 REV 1, Brussels, 29 October 2002. 11 Council of the European Union, Civil Military Co-ordination (CMCO), Doc. 14457/03, Brussels, 7 November 2003. 12 Non-paper by the United Kingdom, Austria and Finland for a seminar on CMCO, London, 17 October 2005. 32
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