the international humanitarian community overview and issues in civil-military coordination mpat...

The International Humanitarian Community

Overview and issuesin Civil-Military Coordination

MPAT TE-8 – Honolulu, HI22-29 July 2005

Sharon McHale

Center of Excellence

Sharon.McHale@coe-dmha.org

Objectives

• Provide overview of the “humanitarian community”

• Identify selected coordination mechanisms

• Identify issues in civil-military cooperation

Key components of a humanitarian response

•Host Nation/Local Authorities

•Affected Populations

•Donor Governments/Agencies

•UN Operational Agencies

•Non-Governmental Organizations (NGOs)

•The Red Cross/Red Crescent Movement

• Working Definition– Emergency Management:

– “Consists of systems, resources, and activities designed to assist a community in mitigating against, preparing for, responding to and recovering from the effects of all hazards.”*

• Process– Mitigate hazards– Prepare the community– Respond to emergencies– Recover from disasters

* TEXAS DEPARTMENT OF PUBLIC SAFETYDIVISION OF EMERGENCY MANAGEMENT

Host or Affected Nation- Emergency Management -

Affected Populations

• Refugees• Internally Displaced Persons (IDPs)• Victims of natural disaster• Migrants

Who is responsible for them?

Major Donors• ECHO: European Community Humanitarian Office

• JICA: Japanese International Cooperation Agency

• AusAID: Australian Council for International Aid

• DfID: UK Department for International Development

• USAID: United States Agency for International Development

• CIDA: Canadian International Development Agency

• Others?

Principal UN Organs - Security Council - Int’l Court of Justice

- General Assembly - Secretariat

- Economic & Social Council - Trusteeship Council

UN Agencies/Programs UN Departments - UNHCR (est. 1951)

UN High Commissioner for Refugees - DPKO: Department of

Peacekeeping Operations

- UNICEF (est. 1946) UN Children’s Fund

- DPA: Department of Political Affairs

- WFP (est. 1961) World Food Programme

- DESA: Department of Economic and Social Affairs

- UNDP (est. 1965) UN Development Programme

- DPI: Department of Public Information

- WHO (est. 1948) World Health Organization

- OCHA: Office for Coordination of Humanitarian Affairs

- UNHCHR (est. 1994) UN High Commissioner for Human Rights

- EOSG: Executive Office of the Secretary-General

- IAEA (est. 1957) International Atomic Energy Agency

- OLA: Office of Legal Affairs

UN

Sys

tem

Ove

rvie

w

NGO Typesno strict categories – often based on programmatic/regional focus

• Development– Working for long-term goals and capacity building of host nation

institutions

• Disaster Relief– Attempt actions to be “A-political”…less inclination to “speak out”– Operate on principle that food/relief are “above the battle”

• Advocacy– Press international community for action on particular issues

• Indigenous/Grass-roots (National NGOs)– Many are implementing partners for Int’l NGOs during disasters– Knowledge of local situation/actors

• Human Rights Organizations– Speak out policy: Monitor actions of politicians, military, police, other

organizations, etc.

• Religious Organizations

Sample Humanitarian Funding

Donors

UN and other International

Organizations

International NGOs

National NGOs

“Implem

entin

g Par

tner

s”

International Red Cross/Red Crescent Movement

• THREE DISTINCT ENTITIES– International Committee of the Red Cross

(ICRC)– International Federation of the Red Cross/Red

Crescent Societies (IFRC)– National Red Cross/Red Crescent Societies

Humanitarian Principles & Values

• Voluntary• IMPARTIALITY: Aid is given regardless of race,

creed or nationality• NEUTRALITY: Aid will not be used to further a

particular political or religious standpoint• INDEPENDENCE: Agencies will not act as a

tool of a state or policy• Humanity• Unity• Universality

NGONGO

Other Other DonorsDonors

ICRCICRC

DonorDonor

DONORDONOR

NGONGO

DONORDONOR

NGONGO

NGONGO

NGONGO

UNHCRUNHCR

WFPWFP

Red Cross/Red Cross/CrescentCrescent

UNICEFUNICEF

Affected Country Affected Country RequirementsRequirements

THE FOG OF RELIEF:THE FOG OF RELIEF:International Relationships During DisastersInternational Relationships During Disasters

UN Coordination in UN Coordination in support of Host Nationsupport of Host Nation

MILITARY FORCES

“plug in

”

Who’s Coordinating?

• Civ-Civ: – Internal to national governments– Inter-Donor– Inter Agency/Organization

• Mil-Mil:– Inter-service coordination – Multi-national

• Civ-Mil…

Coordinating what?

• STRATEGIC– Policy, plans, funding

• OPERATIONAL/TACTICAL– Security– Logistics– Transport– Communications– Information

UN Humanitarian Coordination

• Headquarters/strategic level:– Office for the Coordination of Humanitarian

Affairs (OCHA)– Inter Agency Standing Committee (IASC)– Executive Committee on Humanitarian Affairs

(ECHA)– UN Integrated Mission Task Force (IMTF)– UN Department of Safety and Security (UN

DSS)– UN Development Group (UNDG)

Tools available to UN OCHA

• 24 hours Duty system

• Situation reports

• Donor Meetings

• Flash Appeals, Consolidated Appeals Process (CAP)/Common Humanitarian Action Plan (CHAP)

•Emergency Cash Grants

• Reliefweb: www.reliefweb.int

• Environmental Emergency Section

• Register of Disaster Management Capabilities

• UN Disaster Assessment and Coordination (UNDAC) Team

• UNDAC Support Modules

• Int’l Urban Search and Rescue (SAR) Teams

• On Site Operations Coordination Center (OSOCC)

• Virtual OSOCC

• Military & Civil Defense Assets

• Civil-Military Coordination (CMCoord) CMCoord Capacity

•Non-food Items (NFI) in Brindisi Warehouse

UN Humanitarian Coordination

• Country/Mission level:

• UN Country Team (UNCT)

• UN Resident/Humanitarian Coordinator (UNDP)

• Could also be Designated Security Official

• UN Humanitarian Coordinator (separate)

• UN Lead Agency

Other tools for coordination

• Common Services– Humanitarian Information Center (HIC)– UN Joint Logistics Center (UNJLC)– UN Humanitarian Air Service (UNHAS)

• Standards– The Sphere Project (www.sphereproject.org) – Minimum Operating Security Standards (MOSS)

• Guidelines– Guidelines for the Use of Military and Civil Defense Assets in

Complex Emergencies– Guidelines for Contingency Planning

Basic UN Mission Structure

UNAdministration

Component

HumanitarianComponent

UN CivilAffairs and/or

ElectoralComponent

UN MilitaryObserver

Component

UN CivilianPolice

Component

Deputy SRSG

Special Representative of the

Secretary-General (SRSG)

UN HumanRights

Component

Multi-NationalForce

MNFNational

Authorities

Humanitarian Operations Center (HOC)

Humanitarian Operations Center

• The Humanitarian Operations Center (HOC) is a civilian coordination structure, where UN Agencies, non-governmental organizations (NGOs) and other stakeholders can meet to coordinate in support of the host nation.– (Note: The HOC is a generic name of the coordination entity. The

actual name of the coordination mechanism will likely change from crisis to crisis).

• The HOC is a place where consensus on the best course of action is discussed among the various humanitarian actors, and hopefully achieved.

• While participation in HOC-type structures is IASC mandated for UN Agencies, it is voluntary on the part of the NGO community and other non-UN organizations.

Azuria: Affected Populations

• 375,000 plus IDPs, mostly concentrated in the South

• 32,000 Ethiopian Refugees in the Northwest

• 500,000 drought affected people

• Djbouti earthquake and Mogadishu flood victims

• Populations of concern in inaccessible areas

Azuria Coordination

CapitalCentralSouth

• Humanitarian Operations Centre (HOC) – Djbouti City

• Regional Coordination areas

• Sectors:– Capacity Building

– Emergency Response

– Food Aid

– Health

– IDPs

– Mine Action

– Non-Food Items

– Protection

– Reconstruction

– Refugees

– Water/Sanitation

Capital

Central

South

Logistics Coordination

• UN Joint Logistics Centre (UNJLC)– Main JLC Djbouti City– Sub-JLC Boosaaso– Sub-JLC Mogadishu

• UN Humanitarian Air Service (UNHAS)

• Each agency has its own logistics capacity. UNJLC is a interagency facility of the UN with a mandate to co-ordinate and optimise the logistics capabilities of humanitarian organisations in large-scale emergencies

• Roads major challenge (security/degradation), heavily reliant on air ops

Humanitarian Concerns

• Military “humanitarianism” and erosion of humanitarian principles

• Shrinking “humanitarian space”– Humanitarian aid as key component to

political/military strategy in war on terror

What is “Humanitarian Space”

• The independence, flexibility, and freedom of action necessary to gain access and provide assistance to beneficiaries in a humanitarian emergency. It is achieved through acceptance of and adherence to the humanitarian principles.

Civil Military Coordination is essential for the establishment and protection of humanitarian

space in complex emergencies.

From OCHA CMCoord course 2003

Who is Coordinating?

InternalCivil-MilitaryRelations

Civilian

Military

Domestic

Domestic

International

International

TraditionalFocus of Military CIMIC

Traditional Focus of Humanitarian Actors

International Civil-Military Relations or “UN-CMCoord”

UN OCHAFocus

From OCHA CMCoord course 2003

Guidelines for the use ofMilitary Civil Defense Assets (MCDA)

Guidelines for the Use of Military-Civil Defense Assets during Natural Disasters (1994)

“The Oslo Guidelines”

Guidelines for the Use of Military-Civil Defense Assets in Complex Emergencies (2003)

Tailored to be country specific

A TOOL FOR THE HUMANITARIAN COMMUNITY IN MAKING DECISIONS ON THE USE OF MILITARY CIVIL DEFENSE ASSETS IN SUPPORT OF THEIR OPERATIONS

UN MCDA term is used for military or civil-defense assets are under UN control as per the Oslo Guidelines (1994)

Peacetime missions include training and exercises in the region with no hostile intent.

UN commanded peacekeeping operations include missions under the auspices of Chapter VI or VII of the UN Charter.

Other peace operation / peace support missions include a range of tasks undertaken by military forces that are not under UN command, including peacekeeping, peace enforcement, peace building and other so-called peace support operations where forces are deployed under operational parameters that dictate a minimum necessary use of force.

Combat missions are those where the primary purpose of the operation is the defeat of a designated enemy.

Basic Military Missions

Cooperation Coexistence Competition Conflict

UN MCDA term is used for military or civil-defense assets are under UN control as per the Oslo Guidelines (1994)

Peacetime missions include training and exercises in the region with no hostile intent.

UN commanded peacekeeping operations include missions under the auspices of Chapter VI or VII of the UN Charter.

Other peace operation / peace support missions include a range of tasks undertaken by military forces that are not under UN command, including peacekeeping, peace enforcement, peace building and other so-called peace support operations where forces are deployed under operational parameters that dictate a minimum necessary use of force.

Combat missions are those where the primary purpose of the operation is the defeat of a designated enemy.

Basic Military Missions UN MCDA term is used for military or civil-defense assets are

under UN control as per the Oslo Guidelines (1994) Peacetime missions include training and exercises in the

region with no hostile intent. UN commanded peacekeeping operations include missions

under the auspices of Chapter VI or VII of the UN Charter. Other peace operation / peace support missions include a

range of tasks undertaken by military forces that are not under UN command, including peacekeeping, peace enforcement, peace building and other so-called peace support operations where forces are deployed under operational parameters that dictate a minimum necessary use of force.

Combat missions are those where the primary purpose of the operation is the defeat of a designated enemy.

MPAT TE-8

Cooperation Coexistence Competition Conflict

Types of Military Support• Direct Assistance is the face-to-face distribution of goods

and services.

• Indirect Assistance is at least one step removed from the population and involves such activities as transporting relief goods or relief personnel.

• Infrastructure Support involves providing general services (road repair, airspace management and power generation) that facilitate relief, but are not necessarily visible to or solely for the benefit of the affected population.

Guidelines for the Use of Military-Civil Defense Assets in Complex Emergencies (2003)SECURITY, SECURITY, SECURITY

Ne

ed

for

Ass

ista

nce

Local/National Response

Military and Civil Defence Assets

International Civilian Relief

Time

Humanitarian Need over Time

Information SharingTask DivisionPlanning

PlanningTask DivisionInformation Sharing

relief recovery

CACA

Non-Non-Coalition Coalition MilitaryMilitary

CFLCCCFLCCCENTCOMCENTCOM

J-4J-4

J-5J-5

LRPELRPE

CCCCCC

J-2J-2

J-3J-3

J5-CMOJ5-CMO

J5-CMOJ5-CMO

CFACCCFACC

DIRMOBFORDIRMOBFOR

COALITION or UN COALITION or UN MILITARY FORCESMILITARY FORCES

THE FOG OF RESPONSIBILTY:THE FOG OF RESPONSIBILTY:A Civilian PerspectiveA Civilian Perspective

C7/CIMIC/CMOC C7/CIMIC/CMOC CJCMOTFCJCMOTF

CIVIL

IAN O

RGANIZATIO

NS

“plu

g in”

QUESTIONS