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 in 2006 for the first time made concrete proposals how to ensure coordination not only on the institutional level, but also in the field. 13 The paper underlines the need for a clear strategy and precisely defined goals for all EU actors on the ground and emphasizes the need for a common understanding of the overall aims of the EU’s engagement. Moreover, that paper makes suggestions for the improvement of logistics, and addresses issues related to the co-location of headquarters and the central role of the EU Special Representatives (EUSR) for CMCO in the field. The latest conceptual paper on CMCO outlines possible solutions for information sharing and stresses that on the long run a situation should be achieved in which EU crisis management is regarded as a joint effort by civilian and military means, which should be able to share information through established information networks. 14 At this point, it should also be briefly mentioned that efforts for Civil-military Cooperation (CIMIC) are also embedded into the EU’s concept for CMCO. However, there is a fundamental difference between CMCO and CIMIC. CIMIC is about the coordination and cooperation at all levels – “between military components of EU-led military operations and civil actors external to the EU, including the local population and authorities, as well as international, national and nongovernmental organisations and agencies - in support of the achievement of the military mission along with all other military functions.” 15 It should suffice here to briefly point out that in 2008 the Council of the EU adopted a revised CIMIC concept establishing the basis and framework for the planning and execution of all CIMIC activities and outlining the guiding principles for CIMIC. According to that document, the main CIMIC functions are civil-military liaison, support to the civilian environment and support to the military force. 16 Thus, on a conceptual level the EU developed a detailed understanding of how civilian and military tools of the CSDP should be coordinated. The progress made in the development of the CMCO concept also had an influence on other EU concepts for crisis management. Most importantly, the relevance of CMCO was acknowledged 13 Council of the European Union, Civil-Military Co-ordination: Framework paper of possible solutions for the management of EU Crisis Management Operations, Doc. 8926/06, Brussels, 2 May 2006. 14 Council of the European Union, Civil-Military Co-ordination (CMCO): Possible solutions for the management of EU Crisis Management Operations - Improving information sharing in support of EU crisis management operations, Doc. 13218/5/06 REV 5, Brussels, 31 October 2006. 15 Council of the European Union, EU Concept for Civil-Military Co-operation (CIMIC) for EU-led Military Operations, Doc. 11716/08 REV 1, Brussels, 3 February 2009, para. 15, (emphasis added by the author). 16 Council of the European Union, Civil-military co-operation (CIMIC) concept for EU-led crisis management operations, Doc. 11716/08 REV 1, para. 16. An earlier version is also available: Council of the European Union, Civil-military co-operation (CIMIC) concept for EU-led crisis management operations, Doc. 7106/02, Brussels, 18 March 2002. Through CIMIC reconstruction activities, administrative support and humanitarian aid performed by the military should help to stabilize the country or region through their effects on the economic, social and political sector. 33
Markus MÖSTL in the EU military command and control concept. 17 While at the beginning of CMCO in 2001 the coordination between the Council of the EU and the Commission was in the focus of coordination efforts, concepts for CMCO now concentrate on the coordination within the CSDP. Overall, it can be seen from the concept papers that MS acknowledge that the overall effectiveness of EU crisis management operations can be enhanced with CMCO. 18 C Institutions and Structures Relevant for CMCO An effective coordination of civil and military tools for crisis management also requires strategic coordination among the institutions and structures involved. The CSDP structures were established rather quickly and in institutional terms, the developments in the military domain were always one step ahead of the civilian domain. 19 When the EU military staff (EUMS), tasked with early warning, strategic planning and situation assessment for military operations, was established in 2001, there was no equivalent civilian institution with which coordination would have been possible. The first step to institutionalize CMCO was the establishment of the Civil-Military Cell in 2004, 20 which was set up within the EUMS. In terms of CMCO, the main achievement of this cell was its “Strategic Planning Branch", which was composed of military and civilian planners, including officers from the Commission. In this way, a permanent link to the Commission was established within the General Secretariat of the Council. Although the Civil-Military Cell was certainly supportive to the technical side of civilian operations, for instance with regard to logistics or medical evacuation, it was, however, not sufficiently equipped to perform a detailed planning for civilian missions. The planning of police missions or rule of law missions still rested upon the Head of Mission. The establishment of the Civil-Military Cell within the EUMS also gave rise to doubts about the truly civil-military character of this cell. It may thus be concluded that the Civil-Military Cell was certainly an important step, but on the long run it turned out to be insufficient for effective CMCO. It took seven years until a civilian equivalent to the EUMS was established with the so-called Civilian Planning and Conduct Capability (CPCC). The CPCC has the mandate to plan and command civilian missions at the strategic level. Thus, since 2008 the civilian and military structures became at least comparable to the military structures. Yet, having both civilian and military structures does not necessarily mean 17 Council of the European Union, EU Military C2 Concept, Doc. 11096/03 EXT 1, Brussels, 26 July 2006, 20. 18 See also Radek Kohl, Civil-military co-ordination in EU crisis management, in: Nowak, Agnieszka (ed.), Civilian crisis management: the EU way, European Union Institute for Security Studies, Paris, 2006, 123. 19 Margriet Drent/Dick Zandee, Breaking pillars, 2010, 25 and 28. 20 Council of the European Union, Civil Military Cell - Terms of Reference, Doc. 10580/1/04 REV 1, Brussels, 8 September 2005. 34
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