Volume 6, Number 5 March-April, 2011 PeaceOps.com SouthIndependence Sudan in

South Sudan

An Interview with Sir John Holmes

Local Solutions to Global Problems

JIPOJOURNAL OF INTERNATIONAL PEACE OPERATIONS The Publication of the Africa 10 Years in the International Stability Future Operations Association

Future Stability Operations

Industry

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ISOA’s 10th Anniversary Edition | Contents

Volume 6, Number 5 March-April, 2011

JIPOJOURNAL OF INTERNATIONAL PEACE OPERATIONS

THE PUBLICATION OF THE INTERNATIONAL STABILITY OPERATIONS ASSOCIATION Feature | The Future of the Stability Operations Industry (FORMERLY THE INTERNATIONAL PEACE OPERATIONS ASSOCIATION) Founded in 2004 as the IPOA Quarterly Arthur Keys ISSN 1933-8189 ISBN 978-0-9826386-6-8 Forging Peace in the Midst of Conflict Founding Editor ...... J. J. Messner 09 Meeting the challenges of stabilization to secure the future Acting Editor ...... Kristen Blandford Chief Copy Editor ... Caitlin Tyler-Richards Shawn James and Nicholas Bell Publisher...... Doug Brooks Supervising Editor...... Jessica Vogel Undercurrents in Stability Business Manager ...... Melissa Sabin Contributing Editor ...... Naveed Bandali 11 How contingency contracting can support U.S. foreign policy 1634 I St. NW, Suite 800, Washington, D.C. 20006, U.S.A.

E-mail ...... [email protected] Web site ...... www.peaceops.com Ignacio Balderas Getting Nation-Building Right Regulars | President’s Message 13 Developing new partnerships to build a better future

Doug Brooks Chris Taylor A Decade in Stability What the Future Holds 04 ISOA’s rise from Sierra Leone to Washington D.C. and around the world 15 Figuring out what’s next for the industry

Leader | South Sudan Q & A | Sir John Holmes

Mark Quarterman Naveed Bandali Implementing Independence Improving Humanitarian Response 05 What comes after a successful referendum in South Sudan 19 An Interview with Sir John Holmes

Insight | Peace, Stability and Development Regulars | Government & Legal Affairs

Meg Manthey Heather Price Local Solutions to Global Problems The Future of S/CRS—What’s in a Name? 23 Sustainable development and the role of local nationals 17 How the QDDR could save or sink post-conflict operations at State

Jack Segal The Afghanistan Transition Regulars | Columnists 25 A road yet to be traveled Ambassador Herman J. Cohen Dr. Brent Musolf Africa Ten Years into the Future Treating a Nation 33 Will the cup runneth over or under? 27 The fragile state of healthcare in Juba

Sarah Holewinski Gary Sturgess In Defense of Human Rights The East India Company 29 How the ICoC can assist the fight for human rights 35 A model of corporate governance

Regulars | Development ISOA Membership Directory

Development Resources The Association of the Stability Operations Association Academic and Professional A Directory of the Members of ISOA 38 Relevant academic programs, conferences and events 43 Providing a vast array of services in conflict and post-conflict environments

Copyright © 2011 International Stability Operations Association (ISOA). All rights reserved. The ISOA logo is a trademark of ISOA. The Journal of International Peace Operations (JIPO) and its logo are trademarks of ISOA. The opinions expressed herein do not necessarily represent the opinions of ISOA, its officers, Board of Directors, members or affiliates. ISOA bears no responsibility for the editorial content; the views expressed in the articles are those of the authors. No part of this publication may be reproduced in any form without permission in writing from the Editor-in-Chief.

Journal of International Peace Operations 03 Volume 6, Number 5 — March-April, 2011

President’s Message

Doug Brooks A Decade in Stability

ISOA’s rise from Sierra Leone to Washington D.C. and around the world

Finding ways to make missions end better and faster. Photo: Eric Kanalstein/UN

ate 2000 saw contractors holding together governments to perform specific tasks necessary infrastructure. Fortunately, there was silver lining: the U.N. peacekeeping mission in Sierra to support international peacekeeping policies. A many of the U.N. peacekeeping problems brought L Leone. Of course, 17,000 blue helmets small group of academics and analysts followed to light bolstered the landmark Brahimi Report, from around the world were also contributing to from afar the role these companies played and which advanced many vital peacekeeping reforms. the largest U.N. operation in the world at that debated the their strategic implications and Another positive outcome was the creation of point, but their forces had been routed in May problems. As a part of my academic fellowship at what was to become ISOA in April 2001; an 2000 by a handful of Revolutionary United Front the South African Institute of International association based on a Code of Conduct originally (RUF) insurgents — essentially teenagers with no Affairs, I interviewed scores of Sierra Leoneans, written by NGOs and human rights lawyers to political aspirations who amounted to little more as well as NGO officials, contractors, government advocate for and improve the quality of the than a bloodthirsty street gang. The U.N. forces officials and U.N. personnel. Contractors were private sector support for peacekeeping missions. were ultimately rescued by a handful of highly running and maintaining the logistics trucks; flying professional British soldiers who then stayed on helicopters supporting the U.S. Department of In the ten years since its founding, ISOA has to keep the RUF rebels in check with judicious State, the Sierra Leone army and British forces; grown enormously in capability and influence, as and appropriate use of force until the country and and rebuilding much of the infrastructure. has what is asked of the industry. Certainly, the U.N. mission could stabilize. Even then, with a Whatever one thought of private contractors back fallout from the 9/11 attacks has dramatically massive international presence in the tiny country, then, they clearly had a far more central role in expanded the demand for the stability operations it was the private sector — hundreds of Sierra carrying out the mission than anyone outside of industry, which has been deployed in large Leoneans working for contractors — that Sierra Leone realized. numbers to Afghanistan and Iraq. Large-scale provided the actual logistics, construction and natural disasters, such as the tsunami in Southeast support services for the mission. Even while there were plenty of problems to go Asia, Hurricane Katrina in New Orleans and the around, concerns over contractor operations were earthquakes in Pakistan and Haiti, have also Back then, the contractors working in Sierra utterly dwarfed by the numerous social and required the critical services of contingency Leone were not considered part of an industry; criminal issues created by the enormous imported contractors. While the uninformed may speculate they were simply companies contracted by various U.N. force. While the United Nation’s presence about the industry’s durability, the reality is that did help to stabilize Sierra Leone in the long run, stability operations have always existed in one the peacekeeping mission brought with it many form or another and will continue to be essential Doug Brooks is President of the International Stability Operations Association. undesirable realities, including a thriving sex trade so long as there are foreign policies, humanitarian Contact Doug at [email protected]. industry, which strained an already inadequate  34

Journal of International Peace Operations 04 Volume 6, Number 5 — March-April, 2011

South Sudan | Leader

Mark Quarterman Implementing Independence

What comes after a successful referendum in South Sudan

Staring into the unknown. Photo: Tim Mckulka/UN

OUTH Sudan has successfully carried out the Abyei region remains an exceedingly difficult national debt — and will only be determined hard its independence referendum and the issue for the Government and the South. Whether negotiation. S government of Sudan has accepted the there will be a referendum there and who will be result — an overwhelming vote for secession. The allowed to participate, is the one matter over No issue is more important than the future of oil people of the recently –named, independent which renewed armed conflict could conceivably revenues. Sudan depends on oil for 60 percent of country South Sudan should be congratulated on occur. Third, South Sudan will inherit a country its national income; for the South, oil accounts for ending a decades-long violent conflict with a with only30 miles of paved roads, an uneducated more than 90 percent of revenue. South Sudan peaceful vote. The Sudanese government has population, significant ethnic divisions, an has 80 percent of Sudan’s oil reserves. One acted constructively by allowing the referendum untrained government bureaucracy and little possible method of cooperation is structural, to go forward and by quickly endorsing the economic base beyond petroleum production. because while the oil is pumped out of the ground outcome. Fourth, Sudan, by losing a region that produced in the South, it is refined and shipped from Port substantial amounts of national revenue, must Sudan in the North. The CPA provides for a 50- The international community played a significant face the unknown impact of the South’s 50 division of oil revenue, but expires in July role in this process. The African Union, the departure, especially in relation the significant 2011, and the division going forward will be the United Nations and the United States each played regional conflict and development challenges the subject of hard bargaining. Alternatives that give central roles in negotiating, cajoling and pushing country faces. the South more independence in the production the necessary parties to ensure that the referen- process, such as building a refinery in the South or dum would come off. All should be proud of the The Divorce a proposed pipeline to Lamu, Kenya, would take historic event that has transpired. years to put in place, while potentially causing During the final months of the six-year interim set significant conflict with Sudan. Now, the hard part begins. Four key issues will out in the 2005 Comprehensive Peace Agreement serve as obstacles in separating the South from (CPA), the Sudanese and Southern governments Furthermore, it should not be forgotten that Sudan. First, there will be the tortuous negotia- will make arrangements for their divorce. The Sudan supplies up to seven percent of China’s tions over oil reserves. Second, the disposition of issues are numerous, yet all central to the petroleum needs and has been the recipient of fundamental concerns of each country. They substantial Chinese investment in oil infrastruc- ture. The South Sudan government has reportedly Mark Quarterman is senior adviser and director of the include: oil revenue, borders, migration, Program on Crisis, Conflict, and Cooperation at CSIS. citizenship, protection of minorities, security, pledged to honor previously agreed upon currency and a fair distribution of Sudan’s  06

Journal of International Peace Operations 05 Volume 6, Number 5 — March-April, 2011

Leader | South Sudan

 05 | Implementing Independence | Mark Quarterman contractual obligations. While China has not player in this game, because it produces close to played an open role in facilitating the diplomatic 85 percent of the Nile’s waters. These countries process, it is not hard to imagine that it is working need to cooperate to ensure the free flow of the quietly with North and South to protect its Nile while also taking the water necessary for investments and ensure the continued flow of oil. development. As South Sudan grows, its water use will increase, potentially putting pressure on its . Other issues will be challenging as well. In downstream neighbors. addition to divvying up oil revenues, Sudan and the South must complete the process of These issues were meant to be resolved long separating themselves. Border demarcation has yet before the referendum according to the CPA, but to occur and it will raise the question of nomadic the regions’ respective leaders were unable to herders’ migration rights. A referendum was reach agreement. Fortunately, not all the obstacles supposed to in the region of Abyei, which is require government-centric solutions. For outside the South geographically, at the same time example, some wise observers have suggested that as the referendum in the South. However, the rather than demarcating the border, the parties CPA did not set out who could participate in the should create a border buffer-zone and allow vote, and the parties were unable to agree. At nomadic pastoralists to move back and forth. This issue is whether the nomadic Messiria, who speak seems sensible, in part because South Sudan has a Photo:Tim McKulka/UN Arabic and identify with the North, will be limited ability to effectively govern its full leading up to the referendum. The African Union, allowed to vote as well as the Ngok Dinka farmers territory. It need not take on unnecessary United Nations and United States played who identify with the South. This is a source of governance responsibilities. At the same time, complementary roles in the run up to the vote. potential violence that must be resolved for Sudan there is no such thing as a vacuum in governance. They worked to ensure that the referendum would to move beyond its legacy of violent conflict. Local, traditional, customary methods of dealing occur and now need to assist the parties’ in with land use and movement can and should separation. Along the same lines, whenever a region secedes, continue as the two countries, Sudan and South people do not line up cleanly on the ―right‖ side Sudan work out their separation. Governance Other Challenges of the border. Rather, there will be the issue of does not necessarily equal government. citizenship rights and the protection of minorities. Each of the countries that will arise from this Will people be allowed to hold dual-citizenship? The key will be for the parties to establish process — South Sudan and a considerably Will some be stripped of citizenship and therefore effective processes to resolve these issues. The smaller Sudan — will have considerable lose property and rights, or be divided from North and South have discussed their conflicts via challenges before them. South Sudan is one of the family or business interests? the CPA without reaching any consensus. On poorest territories in the world. Providing its many occasions, the parties have put off dealing citizens with security and the minimum of life’s Finally, access to and production of water, with important and complex questions, but their necessities will be a major accomplishment. Sudan especially the use of the Nile, will be a existential time to procrastinate is rapidly decreasing. The still has conflicts in Darfur and other parts of the issue for the newly formed South Sudan, Sudan North and South will need help — in logistics as country. Whether the government, after losing the and Egypt. Ethiopia is an extremely important well as mediation — as they did in the process South, will have the strength and means to resolve these longstanding conflicts remains to be seen. Sudanese president Omar Hassan Ahmed al- Bashir and other senior officials still have indictments issued by the International Criminal Court to reckon with.

After decades of civil war, and six years under the CPA, the impending divorce of North and South Sudan will not be an easy separation. Each will depend upon the other for its economic survival. The cooperation between North and South during the interim CPA period was spotty. The stakes are increasing now, and the two new sovereign states need each other more than ever. Whether they can make this an amicable divorce remains in question. 

Sudanese oil—a question of some contention. Photo:Tim McKulka/UN

Journal of International Peace Operations 06 Volume 6, Number 5 — March-April, 2011

Feature | The Future of the Stability Operations Industry

The Future of the Stability Operations Industry

Defining stability operations in a changing world

Left: Doug Brooks speaks to a member at a recent conference. Photo: ISOA; Right: A look at the stability operations industry. Collage graphic: Atlantic Exhibits

TABILITY OPERATIONS is, despite undeniable connection between instability and integration and coordination between the U.S.’s media rambling, not a new term - and poverty, emphasizing the role that the private big three foreign aid implementing agencies – S Stability is not simply replacing Contin- sector can play in sustainable development. This DoD, State and USAID – and private sector gency. Military branches and government agencies critical role is challenged by internal and external actors. With proper oversight and transparency have used the term to define various types of factors. How the industry reacts and adapts to paired with support from ISOA, this new model operations. However, change in the industry over changing federal budgets, communications could be the next big evolutionary step for this the last five years, including a heavy emphasis on opportunities and accountability questions will global industry. civilian participation in high-risk environments, determine the evolution of private sector work in has placed stability operations squarely in civil high risk environments. Figuring out what’s next may mean getting back society’s radar. to basics. Chris Taylor traces the timeline of the That industry evolution will occur in a vibrant industry from 9/11 to even more recent history, ISOA, celebrating its 10th anniversary as the market for contractors. Shawn James and pointing to the challenges facing the industry and association for private sector organizations Nicholas Bell explore the undercurrents of the best practices for the next era of stability working in conflict and post-conflict environ- competitive environment in which stability operations. While contracts and investment ments, recognizes that stability operations are not contractors operate, noting that emphasis on price solidify the existence of the industry moving confined to one area or type of operation. In fact, over quality exists alongside vast opportunities for forward, its reputation depends on the businesses those involved in stabilization efforts may be in multidimensional approaches and innovation. A working within it. Accountability, transparency, theater before conflict actually occurs, working move toward the latter will only benefit the certification, communication and quality will alongside military and governmental partners achievement of U.S. foreign policy objectives as determine the stability operations industry’s future during crisis and conflict, assisting with recon- the industry solidifies its role. role as a responsible and ethical player in the struction and setting the stage for long-term achievement of foreign policy goals, development development. The private sector continues to be In the past, the three D’s—defense, diplomacy and human freedom. the nexus to success in operations in the and development—defined U.S. foreign policy aforementioned arenas, as stability operations strategy. For the future, Ignacio Balderas Next issue, the Feature section will be continue to evolve . discusses the application of President Obama’s Humanitarian Security.  domestic plan for public/private partnerships, or This evolution does not come without its the three P’s, to stability operations worldwide. A challenges. Dr. Arthur Keys begins by tracing the ―3D + 3P‖ approach would provide greater

Journal of International Peace Operations 07 Volume 6, Number 5 — March-April, 2011

The Future of the Stability Operations Industry | Feature

Arthur Keys Forging Peace in the Midst of Conflict

Meeting the challenges of stabilization to secure the future

Human development at the ground level. Photo: W. Wild/UN

HE United States government and private development efforts can be built to achieve a terrorist organizations. In short, communities that sector organizations have long been more rapid — and sustainable — impact. The receive the support to develop their own markets, T involved in efforts to establish conditions standardization of stability operations as a distinct capacities and governance systems will become conducive to long-term peace and development, foreign affairs discipline is largely a result of their more stable and peaceful, allowing longer-term but only recently has this work been labeled emerging importance in U.S. foreign policy efforts development to take root. Serbia and Montenegro ―stability operations.‖ It is even more recently that over the last two decades. From the Western provide solid examples of how such stabilization private sector groups involved in stability Balkans to Haiti to Somalia, it is widely acknowl- support can work. operations have organized themselves into an edged that the primary threats to U.S. national ―industry.‖ security emanate from unstable or failed states For these reasons, the United States and other that allow terrorist entities to take root and spread developed nations will continue to invest in the Stability and Development their authority and influence. strategic capabilities necessary to combat instability and terror. Although I am confident Development professionals have known for Stability is essential to the sustainable develop- this commitment will endure, stability operations decades of the strong relationship between ment that can permanently lift communities and face challenges to ensure they are sufficiently instability and poverty, lack of freedoms and other nations out of poverty and put them on the road resourced to be effective, that is, to reduce the forms of suffering. What is new is that the to economic growth, a strong civil society and need for a military presence in unstable or development and stability communities are now increased government responsiveness and stabilizing countries. reaching a consensus on how best to link stability accountability. President Barack Obama and operations to longer-term development solutions Secretary of State Hilary Clinton have supported The Challenges Ahead for nations emerging from conflict. capacity building efforts in fragile states like Sudan, Afghanistan and Pakistan. They under- The stability operations industry must address Stabilization activities are not a substitute for stand that stability opens avenues to opportunity several challenges. First is the U.S. government’s development programs, but they certainly can for individuals, communities and businesses to budgetary environment. Support for stability help lay the foundation upon which long-term unleash innovation; encourages domestic and operations is divided among multiple budgetary foreign direct investment; and promotes free accounts, departments and agencies. In addition,

Dr. Arthur Keys is the CEO of International Relief & enterprise and job creation alternatives for large the U.S. government budget is constrained by the Development (IRD) based in Arlington, Virginia. IRD has numbers of unemployed or disaffected workers programs in more than 40 nations around the developing political environment and the recession, with most world. For more information, visit www.ird.org. who may otherwise be open to recruitment from  10

Journal of International Peace Operations 09 Volume 6, Number 5 — March-April, 2011

Feature | The Future of the Stability Operations Industry

 09 | Forging Peace in the Midst of Conflict | Arthur Keys parties in agreement that budget deficits need to be reduced. Secretary of Defense Robert Gates has made efforts to squeeze efficiencies out of the Pentagon’s budget by, for example, reducing orders for hardware designed for large-scale missions, which appears less necessary in an era of increased stability operations. Secretary Gates has framed the issue in a way that is fully compatible with U.S. diplomatic and development strategy, and offers protection to stability operations budgets from imprudent cutbacks.

But such an outcome cannot be assumed. Strategic needs are just one factor; another is a Congress that must respond to political exigen- cies. In this regard, we must note that many stability operations are managed by departments Creating the road to a better tomorrow. Photo: Massoud Hossaini/USAID other than Defense, generally falling under the broad category of ―foreign aid.‖ The foreign aid International Relief & Development (IRD), which their performance, accountability and standards. budget, rarely popular even in good economic is now working in more than 40 developing We must hire the best personnel, implement the times, may be vulnerable. nations. most disciplined processes and operate according to best practices. Under conditions of instability, The second major challenge facing stability IRD’s Community Revitalization through rules and authorities are in flux, and maintaining operations is communicating the strategic Democratic Action Program (CRDA) in Serbia consistently high standards can be difficult. But importance of stabilization activities to the newest and Montenegro implemented 1,024 projects, we must maintain such standards to maintain the decision-makers in Congress. Stabilization from building infrastructure to increasing support of those we assist, those we work with programs advance U.S. interests and help the poor agricultural output to organizing varied social and our donors. in unstable societies to live better lives. Since 9-11, projects like sports teams. Associations and federal policymakers (including members of cooperatives formed under CRDA are expanding Improving performance and accountability Congress and their staffs) have come to recognize and earning income. In Montenegro, Serbia and includes working with and through local the importance of stability operations — for Kosovo, IRD and other NGOs have helped authorities and personnel. In Afghanistan, IRD which ISOA and its members deserve some residents develop the skills and put in place the works with local leaders to both plan and credit. However, it is critical that new members of organizations to support deepening democratiza- implement road building, agriculture, healthcare Congress and their staff — especially those who tion and economic development. and other projects. Over 90 percent of our staff in are already supportive of defense and national that country is Afghan, and they are learning vital security — learn how stability operations are As a result, people are not only more free and skills, building vocational capacities and earning central to U.S. foreign policy and national security prosperous, but also exercise greater control over income to support their families and communities. objectives. their communities and societies. Perhaps most Working with local authorities and employing importantly, social, economic and political stability local workers is the only way to quickly build The industry should communicate the importance has greatly reduced the potential of wide-scale capacity and turn a stability operation into a long- of stability operations to intellectual leaders as conflict and the suffering it inflicts. While many term development success. well, such as those in the media and think tanks. people still think of the nations of the former- The ability of economic, political and social Yugoslavia in terms of the brutal ethnic and In today’s world, stability operations are an development to markedly improve the lives of religious conflicts of the 1990s, the new reality is integral part of statecraft. They help communities those who have fallen victim to destabilization different. Deliberate and patient stability and develop and sustain more peaceful and prosper- results in many inspiring stories that speak directly development operations, supported by the United ous societies. It is important that successful to the United States’ desire to project itself as a States and the international community, were clear stabilization efforts be communicated outside the positive force in the world and to protect peace successes. More people should know this story. stability operations industry. The more policy- and long-term security. I recall, for example, the makers, intellectual leaders and the public importance of this work to the many individuals Performance and Accountability understand the benefits of stabilization, the more and communities in former-Yugoslavia where I likely it is that our ―industry‖ will continue to began my stabilization and development career. I The final challenge to stability operations is deliver strong results for our donors, our national believed so strongly in the importance and perhaps the most important. The stability security interests and, most importantly, our effectiveness of this work that I launched operations industry must work harder to improve beneficiaries. 

Journal of International Peace Operations 10 Volume 6, Number 5 — March-April, 2011

The Future of the Stability Operations Industry | Feature

Shawn James and Nicholas Bell Undercurrents in Stability

How contingency contracting can support U.S. foreign policy

Integrating defense and diplomacy. Photo: Petty Officer 1st Class Chad J. McNeely/DoD/US Navy

S it exists today, the contingency and competitor initiatives, which have a more led to an oversaturated market. Furthermore, with contracting market is defined by lasting impact on the bottom line. The following buyer volume on the decline, firms are more A uncertainty. Its function to provide life three market dynamics will reshape the contin- willing to take risks in order to secure contracts, and mission support services in unstable gency contracting industry in the near-term. and to engage in low price shootouts in order to environments bereft of political, legal, or maintain what shaky foothold they may possess in economic systems has always existed in one form We Are On the Verge of a “Last Supper” the market. These trends do not create optimal or another. Yet, today’s market is more intimidat- value for the customer, or result in solutions that ing than ever as U.S. policy re-examines In 1993, major aerospace and defense executives advance U.S. foreign policy objectives. With the overburdened commitments in Iraq and attended a summit at the Pentagon at which inclusion of $159 billion in discretionary funding Afghanistan; local politicians exert self- Office of the Secretary of Defense (OSD) in Iraq and Afghanistan in the Department of sovereignty and crack down on contingency leadership presented industry with a challenge of Defense’s FY2011 budget request (22 percent of operations; and the public and media fail to consolidation. Defense budgets were declining in the entire DoD budget), a financial precipice can separate amoral individuals from the neutral the wake of the Cold War (according to the be seen in the not-too-distant future. [1] As the industry. However, the truth remains that these Center for Strategic and Budgetary Assessments, war efforts in Iraq and Afghanistan wind down, contingency contractor services are critical to U.S. defense budgets declined at a rate of 3.1 percent just as the Cold War procurement was in its last foreign policy and provide ―bookends in conflict.‖ compounded annually from 1985 to 1998), and throws in the late 1980s, industry consolidation is the customer saw little value in supporting an a necessary response to demand reduction. Too often, the topic of future market dynamics overdeveloped industrial base. In the same way focuses on predicting the next crisis location and the heralded Lockheed Martin executive Norm An ancillary benefit of consolidation is that trying to be the first to respond. It is hardly an Augustine cited that night as the ―last sup- contractor behavior can be corrected. In the exact science, is rarely predictable and resembles per‖ (and later penned in the article titled ―The contingency services market, non-compliance, something akin to ―The Amazing Race.‖ One Last Supper, Revisited‖), the contingency questionable ethics and risk acceptance undermine should instead focus on structural market changes, contracting market faces its own crossroads. the delivery of service. For the U.S. government, such as business models, customer-buying habits monitoring and regulating an oversaturated A services market that favors price over quality, marketplace is an increasingly challenging and

Shawn James is the Senior Vice President at SOC Interna- low barriers to entry and is subject to a sudden, costly endeavor. In order to take on these tional. challenges of tomorrow, the customer needs to Nicholas Bell is the Manager of Business Development rapid increase in demand during the initial stages Operations at SOC International. of conflict — like in Iraq and Afghanistan — has  12

Journal of International Peace Operations 11 Volume 6, Number 5 — March-April, 2011

Feature | The Future of the Stability Operations Industry

 11 | Undercurrents in Stability | Shawn James and Nicholas Bell shape its partners of today. A market that is downward by concentrating buyer volume. as the acquisition strategy recognized and consolidated and shrinks by acquisition and compensated for it. As firms struggle to natural selection will eliminate poorly performing Additionally, unless the contracts are multiple- differentiate themselves from one another, firms whose prioritization of price over value award vehicles, it could artificially restrict receiving compensation for a value-add capability negatively impact the U.S. mission. competition and leave the vehicle inflexible to would incentivize innovation and could better new ideas, trends or suppliers. Whether or not this justify the cost borne by the taxpayer. It also Contract Vehicles for Multiple Customers tradeoff results in an increase or decrease in could reduce the relative ease with which quality of service is something that needs to be incumbents are replaced for the next lower cost Counterinsurgency reshaped thinking inside the further explored, but using pre-qualified vendors provider, and create new barriers of entry to firms defense, diplomatic, and development establish- should result in an improvement in quality. looking to make a quick profit, forcing contrac- ments. Multidimensional approaches that balance Ultimately, certain contract vehicles may be tors to become vested in the interests of their kinetic force and soft power demand a seamless successful when implementing this model, but the supplier network — something critical to coordination of capabilities and management trend could impact the industry in an adverse transitioning responsibilities to locals. among multiple U.S. government entities and their manner. partners. The ability to fight insurgents, imple- Of course, this concept needs to be further ment reconstruction projects and stabilize and Opportunities for Innovation discussed in light of the use of third-country develop the community is a mission that falls on nationals in wartime environments. Third-country the shoulders of many stakeholders. Transitioning Contractors bemoan the level of competitiveness nationals, originating from places such as Latin missions from defense agencies to diplomatic and in the industry. However, nothing is more America, Africa, and Asia, compose 40% of the development counterparts will require flexible important to the customer’s mission. To its own overall DoD contractor workforce in CENTCOM contract vehicles that can span a variety of fault, the industry has failed to be as innovative as AOR, totaling over 70,000 people. There is no customers. This trend is beginning to emerge with it can and has not fully explored the potential exact number as to how many third country contracts in Iraq and could expand further in value of the services it provides. For instance, the nationals have served as contractors worldwide, Afghanistan. immediate function of the contingency contractor but one can only imagine the number of is to provide a specific service. However, given individuals returning home with either positive or If contract vehicles are tied to particular missions the business model’s preference or stated negative opinions of the United States. This and objectives instead of to a particular customer, requirement for employing locals and building immense network of potential advocates or this could pose an interesting balance of benefits capacity in host nations, contingency contracts detractors of the American brand needs to be and drawbacks. For the customer, it leverages may also act as a potential ―second-front‖ in better understood so that U.S. efforts can be sunk costs and allows the U.S. government as a support of diplomacy and development. maximized. whole to tap into capabilities to support its mission. The ability of the defense, diplomatic and According to the latest OSD figures, local For as many shortcomings as the contingency development establishments to tap into an Afghans account for 53 percent of the entire contracting industry has, there are an equal, if not existing pool of preselected contractors dedicated contracted workforce in Afghanistan. Further- greater number of benefits. All in all, the to a mission potentially maximizes operational more, local nationals account for 33 percent of contingency contracting industry functions as a de efficiencies. From an industry standpoint, this the entire contracted workforce in the U.S. facto mechanism of U.S. foreign policy. Policy trend could potentially press industry prices Central Command Area of Responsibility planners in the U.S. government codify the countries (CENTCOM AOR) to the tune of industry’s existence in its formal planning 58,000 personnel, a number greater than the processes. NGOs and development-oriented remaining U.S. troop level in Iraq. U.S. contrac- contractors push collaboration and form trade tors employ many of these locals, which in associations. Private equity firms buy up essence functions as a major economic develop- properties, insulating their portfolios from near- ment program. Operating beyond the wire and/or term market instabilities. While the industry in close business relationships with local nationals continues to establish an air of permanence, most positions contractors to participate in nation- firms that operate within it do so without a building at a deeper level. If the U.S. government thought to what the future may hold. Only by were to further encourage it, there would be reacting to market dynamics, such as some of the opportunities for contractors to provide ones outlined above, can the industry evolve to additional services to enrich local prosperity. realize its true potential. 

From an industry standpoint, this concept would Endnotes mitigate several negative market trends. It could create stimulated competitive advantage by 1. This number does not take into account the impact of encouraging a new vector for innovation, as long these two wars on the defense base budget’s personnel and O&M accounts. Norm Augustine—a visionary in the field. Photo: NASA

Journal of International Peace Operations 12 Volume 6, Number 5 — March-April, 2011

The Future of the Stability Operations Industry | Feature

Ignacio Balderas Getting Nation-Building Right

Developing new partnerships to build a better future

The U.N. and U.S. Army team up for the Haiti reconstruction. Photo: Sophia Paris/UN

NITED States foreign policy today In his State of the Union speech in January, prosperous environment where newly formed pivots on three legs: defense, diplomacy President Barack Obama noted the need for governments learn legitimate, democratic U and development, the three Ds. The budget trimming. The new majority in the House governance, while they rebuild infrastructure and balance is not always struck in equal measure: of Representatives has claimed the mantle of patch back together the quilt of a foreign society different missions hold different requirements and government frugality and the race is on to see torn apart. Creating a peaceful and self-sustaining financial constraints tend to hinder the perfect who will wield the budget axe most adeptly. In society from the wreckage of war is a delicate balance. It is a delicate geometry, with nothing less these circumstances, it is our duty to protect the process with a seemingly bottomless set of than global stability and development bound up in necessary ingredients for an effective and challenges; and sometimes the fractured nature of the results. With that in mind, looming budget successful foreign policy, and to help see ahead to our foreign policy approach to this epic task risks constraints and shifting national priorities will even more effective strategies than those we now fractured results. What if our approach actually shake the three Ds’ balance at a critical time, when rely on. The key functions that allow the hinders progress? the planet is awash in epochal change -- some of it Department of Defense, with its lion-share role in peaceful and inspiring, some of it violent, awful our nation-building efforts, to stabilize war- Today, U.S. government agencies operate and destructive. ravaged zones; the governance and diplomacy overseas contract-by-contract, drawing funds functions performed by the Department of State; from dedicated government and international We must insist that full accounting be done when and the development, training and construction donor streams. Because these funds are tied to the budget cuts come; that the price of cutting jobs organized by the US Agency for International individual agency projects, and not to an overall effective elements of foreign policy ―investments‖ Development, among others — these are the framework for success, our efforts sometimes now is not a boom in global destabilization later, essential ingredients to an effective foreign policy, miss the forest for all the trees. We risk creating and thus the consequential diminishment of U.S. even if not always perfectly synchronized. dependent, infant governments to negotiate for power around the world. Securing proper funding, the next project instead of a holistic plan for self- and then deploying it effectively, is absolutely When the current foreign policy of defense, sufficiency. In a game of economic cannibaliza- critical to preserving the United States’ role as diplomacy and development takes on the tion, the newly formed governments will seek to world leader. Unfortunately, the environment we challenge of stabilizing underdeveloped conflict fund their treasuries no matter what — even if it face is grim. and non-conflict zones, it relies on the coordi- means heavily levying against foreign companies

nated efforts of three separate U.S. government that perform the very development work meant to Ignacio Balderas is the CEO of Triple Canopy. For more agencies, oftentimes more. The organizations nurture a flowering local and self-sustaining information, please visit the Triple Canopy website at www.triplecanopy.com. must collaborate to deliver a secure and  14

Journal of International Peace Operations 13 Volume 6, Number 5 — March-April, 2011

Feature | The Future of the Stability Operations Industry

 13 | Getting Nation-Building Right | Ignacio Balderas economy. dependent anew. What’s more, taxing government Potential funding shortfalls for stability operations contracting companies tends to pass higher costs created by the worldwide economic downturn This can quickly turn into a losing, zero-sum game to the government and can act as a double billing could be augmented by private dollars if the of diminishing returns for the struggling host of the government as these taxes are passed along. government supported a return on investment. country as well as the United States and other This return on investment could be a post-conflict nations committing genuine resources to the New governments do not have to follow best contract to develop natural resources if the private effort. The way to create a healthy economic practices. Some foreign countries do not have to partner(s) participated in funding the necessary engine for a developing nation is to pave the way meet our regulations nor have they spent any of infrastructure projects early on. for the creation of national industries and jobs, an their resources doing the heavy lifting to create effective education system and a civil, tolerant nascent economic opportunities. They do not This developmental opportunity and return on society. The development of national resources is have to be transparent and do not have to worry investment could be integrated into overall an absolutely key ingredient in the recipe of a long about being held accountable to Western stability development operations, but would need -term recovery. Without the healthy fostering of a standards. They do not have to answer for any of to be coordinated by a centralized government growing local economy, host countries will never the myriad of issues that stem from the hard work entity with better visibility and control over the acquire the basic government functions necessary of peace-making and nation building. These entire process. Imagine the efficiencies available to maintain a peaceful society. unregulated foreign entities do provide investment by removing the bureaucratic red tape and dollars that create opportunities for corruption. stovepipes separating the distinct but interrelated Apart from the various moral and leadership Consider the southern Iraq oil leases distributed functions of Defense, State and USAID in questions at stake — which, to many, make for a to nations with no consideration for the efforts international development. compelling case on behalf of the mission to made about the way to stability. In Afghanistan, deliver security and self-government to peaceful China has already won access to mining contracts, Critics will point to profits in conflict zones as people stung by war and extremism — there are sweeping in to enjoy the opportunities afforded reason alone to oppose this effort, but that is basic economic challenges to confront. by the grueling efforts of others, namely the counterintuitive and destructive to the mission. United States. The goal is to build a nation with a functioning, New governments must create self-sustaining independent economy sustaining a free and economies to enable continued security, One answer is to mimic President Obama’s tolerant society. Demonizing profits and revenue governance and stability independent of ongoing domestic plan for public/private partnerships. An — the basic metrics of a functioning economy — international aid. Practices of taxing contracting internationally-focused public/private partnership undermines our national goals. In the very basic companies produce short-term revenue, which (three Ps) could support international stability math outlined here, less spending and elbow ends when the stability support-based contracts operations by working with government agencies grease in these categories equals more instability reach term — leaving the new government to integrate the three Ds with the three Ps. in more places for longer periods of time. It means more suffering for more people, more warlords and less peace — basically, it risks chaos. It will do far more than tarnish the United States’ reputation, and do worse than dent our pride. However, with sufficient transparency, oversight and accountability by a single government entity, public/private partnerships can succeed.

Foreign corporations that are not transparent (and therefore fall short of the 3D + 3P ideal) will rebuff international oversight. They will import their own skilled workers, fail to train a local work force and extract natural resources without any long term commitment to the mission on the ground. Organizations such as the International Stability Operations Association (ISOA) can play a part by providing a measure of oversight for members and becoming an advocate for global business and contracting standards. We can either work to improve the situation, or do nothing at all and watch our nation’s efforts and our own fall short of their capability. 

Building bridges is needed in more ways than one. Photo: UN/UNICEF/ZAK

Journal of International Peace Operations 14 Volume 6, Number 5 — March-April, 2011

The Future of the Stability Operations Industry | Feature

Chris Taylor What the Future Holds

Figuring out what’s next for the industry

Exploring new horizons. Photo: Staff Sgt. Jeremy D. Crisp/US Army

HE last ten years has seen the United unenviable task of balancing the financial cost of (QDR) and the State Department’s Quadrennial States and other nations involved in war future engagement against the tragic cost in lives Diplomacy and Development Review (QDDR) T and conflict around the world. While and freedom for their inaction. The United States do not make great mention of the private sector. operations to stabilize and then develop conflict is well aware of the costs of blood, treasure and This represents a failure, in part, of the stabiliza- areas have been ongoing for decades, there was sometimes reputation. As the 2012 election cycle tion industry to effectively convey the value it exponential growth following September 11, 2001. begins, political debates about U.S. and interna- brings. However, it also speaks to government While the effects of these conflicts have been tional interests will come to the fore. Arguments efforts to define ―inherently governmental‖ and devastating for many, born from these disparate for isolationism, global engagements without associated functions in order to recover those engagements was the stabilization industry, which troops or for a ―long war‖ against radical positions; and at the same time, its attempts to aims to refine and improve the way services and ideologies will collide and have real ramifications discern true value from the stabilization industry aid are delivered to harsh environments. for the stabilization industry. The international in order to make the best acquisition decisions. Comprised of private sector companies — community will listen to these debates as their language and intelligence, security, logistics, own realities change. The multiple transitions in As an industry, we must make all investment training, medical, construction, professional the Middle East and the birth of a new nation in necessary to communicate to all stakeholders the services, NGOs and non-profits — this new Africa –South Sudan– are examples. true cost of supporting both contingency and industry has woven itself into the fabric of routine operations: what is in the realm of the international affairs to offer its collective expertise Because of all of this, the stabilization industry possible, and what should stay in the fantasy of a in support of defense, diplomacy and develop- will also have to figure out ―what’s next‖ as well-written proposal. By doing so, we protect our ment efforts. But will it stay that way? coalition forces draw down in Iraq and NATO integrity and raise the bar so that those who forces prepare to withdraw from Afghanistan by dramatically underbid the reality of the require- In a new age of austerity for governments 2014. With this future, providing more services to ments in a request for proposal (RFP) to exploit everywhere, decisions to engage in stabilization the United Nations, European Union, NATO and ―lowest cost, technically acceptable‖ and ―best operations will be hotly debated. While conflicts the African Union are all potential opportunities. value‖ acquisition decisions without due regard care nothing for policy, decision-makers will have for executing the contract with timely, positive to be more selective about where and to what The U.S. government continues to struggle with results simply cannot win. Just as there is extent they engage. Governments will have the the role of the private sector in supporting campaigning and governing in politics, there is national security and foreign policy. The bidding and executing in government contracting Chris Taylor is the CEO of Mission Essential Personnel. Contact Chris at [email protected]. Pentagon’s 2010 Quadrennial Defense Review  16

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Feature | The Future of the Stability Operations Industry

 15 | What the Future Holds | Chris Taylor and we all bear the responsibility to ensure announced a $100 billion budget reduction. In the will improve. While the stabilization industry acquisition officials and end-users have a clear United States, the large industry players like continues to lead the way with solid codes of understanding of what can actually be done at Lockheed Martin, BAE and Northrop Grumman conduct and ethics and self-policing mechanisms, what cost in the most dynamic of environments. have choices. Because of their scale, they can it is not enough for many. Engaging lawmakers choose to divest or acquire, but will have to be and helping to shape responsible legislation will be Similarly, we must also protect ourselves and our mindful of the government’s view of how those important to ensure bad actors are held account- collective integrity against those companies that activities will affect the quality of the offerings of able and good actors have the flexibility to use the Government Accountability Office the resulting entities. The Pentagon wants continue to contribute to regional, national and (GAO) protest as a business development strategy increased competition, but it wants to ensure that international engagement strategies in chaotic merely to extend revenues gained from failing competition yields better quality, too. regions of conflict. programs or to elicit sub-contracts from the winning team. It harms the entire industry’s Private equity firms have a lot of money to invest. Impending budget constraints will demand that reputation and drives source-selection boards and Lockheed’s announcement to sell PAE and our industry find new ways to deliver value and contracting officers to make sub-optimal Northrop’s sale of TASC to deal with organiza- measure performance beyond the confines of the acquisition decisions. If we fail at this, if we tional conflict of interest (OCI) challenges are contract and without additional cost to customers. permit a race to the bottom, the entire industry efforts to divest distractions to their core work as Particularly, industry support to policymakers who suffers, as do those who desperately need our competition increases and budgets decline. The report to Congress (and to Congress itself) the services. Market forces are meant to bring forth recent acquisition of DynCorp by Cerberus value of our efforts is essential to ensuring the solutions that best meet and exceed the Capital Management, KKR’s acquisition of TASC accurate performance information is available to challenges we face as a nation; and we must and the recent sale of Xe to Forte Holdings everyone and to enhancing partnerships. protect that market freedom at all costs. If we do demonstrate clearly that investors see value in the not, unnecessary and uninformed regulation will industry. Innovative private equity firms will Finally, the stabilization industry must continue to result. Knowingly bringing forth a C+ solution quickly move on deals to create the ―next best adopt an open and transparent approach to our dressed up as an A because it can win a RFP prime‖ to compete with established companies work. Hunkering down in the face of inquiries beauty contest does not enable human freedom and disrupt the status quo. These deals can be and investigations only causes one to miss the nor advance the defense, diplomacy and very profitable when investors can leverage opportunity to logically and rationally educate development missions we support. economies of scale and find innovative leadership stakeholders and document the realities of to drive these new entities to success. operations in conflict zones. We must continue to Finding the right third-party certification process, ask ourselves the hard questions about what we one that is accepted by governments and Accountability will continue to be at the center of do and how we do it. We don’t make iPods or international organizations, is paramount. We industry scrutiny. The Defense Contract Audit Cheerios; we support war-fighters, diplomats, must at every turn set the bar high and ensure Agency (DCAA) and the Defense Contract development professionals, multi-nationals and only those willing to invest in their companies and Management Agency (DCMA) will spend much civilians in harm’s way. With that comes a perform above reproach are permitted to provide more time with ―contingency contractors‖ and tremendous accountability to them as well as services in support of missions and contracts that their business systems. Those without recent, taxpayers and donors. can cost lives. completed audits will, at the least, find themselves subject to pre-award audits for accounting The stability operations industry must embrace As the world’s economies recover from the systems, but also to full-scope billing, estimating business’ role in a good and just society. The ongoing financial crisis, government budgets will and purchasing-system audits. Of course, legal honor associated with supporting national security shrink to recover. The Pentagon has already accountability will continue to be challenging, but and foreign policy brings with it additional responsibilities above and beyond that of traditional private sector operations. Without a clear and common industry moral compass by which to operate (even when nobody is watching), we cannot claim to enable human freedom or support those in poverty; we only invite unwarranted and uninformed scrutiny, and risk further damage to our industry’s reputation. We must set the standard high and hold ourselves accountable, while finding new ways to deliver value. We have it in our power to define how people see us, and the value we provide, and we should embrace every opportunity to demonstrate that.  A new budgetary climate. Photo: Petty Officer Chad J. McNeedly/US Navy/DoD

Journal of International Peace Operations 16 Volume 6, Number 5 — March-April, 2011

Government & Legal Affairs

Heather Price The Future of S/CRS — What’s in a Name?

How the QDDR could save or sink post-conflict operations at State

Will a change at home make a difference on the ground? Photos: DoS

ELEASED in late 2010, the Quadrennial The Creation of S/CRS civilians within DoD, tasking it with easing Diplomacy and Development Review interagency tension in order to facilitate more R (QDDR) put several issues within the The Office of the Coordinator for Reconstruction cohesive planning for stabilization and reconstruc- Department of State (DoS) under the microscope. and Stabilization in the Department of State (S/ tion operations in the future. Much was at stake in One important feature of the QDDR was the CRS) was created in 2004, but given formal the creation of and subsequent emphasis on S/ light shed on the State Department’s capacity to direction in National Security Presidential CRS, as the office connects the lessons learned in handle its presidentially-mandated responsibility Directive-44 (NSPD-44) in late 2005. S/CRS was Iraq and Afghanistan to future S & R exercises. for post-conflict situations. As such, the QDDR created to solve the problems that arose from an brought attention to the Office of the Coordina- earlier NSPD. NSPD-24, released in January 2003, S/CRS was created in a climate hostile to its badly tor for Reconstruction and Stabilization (S/CRS), was a formal handover of post-conflict responsi- needed core mission. In many ways, the gesture of attention the office had been sorely lacking since bility to the newly-created Office of Special Plans creating S/CRS could be seen as a tangible its inception. The QDDR promised significant in the Department of Defense (DoD). In many manifestation of deepabiding internal conflict reforms to S/CRS so as to bolster DoS’ capability ways, NSPD-24 demonstrated a militarization of within the administration at that time. This was to manage post-conflict stabilization. It needs to operations referred to as ―Stabilization and readily apparent when Secretary of State Colin be considered, however, whether the QDDR’s Reconstruction,‖ or S & R. However, nearly three Powell and Deputy Secretary Richard Armitage scrutiny of S/CRS will succeed in transforming years later, NSPD-44 essentially reflected a did not support the creation of the office, as any the neglected office, or if this attention is merely a negative assessment of DoD’s handling of S & R modicum of foresight would have accurately passing trend. It is possible that renaming the operations after NSPD-24, and re-assigned predicted considerable problems in staffing and office is enough to ensure that this new focus will control of these exercises to the State Depart- funding. This opposition conflicted with the goals successfully strengthen DoS’ aptitude for post- ment. NSPD-44 expanded the responsibility of of certain high-ranking civilians in the Pentagon, conflict stabilization and reconstruction. If not, a DoS, now charged with the duty to ―coordinate who believed the bureaucracy of DoS should not much greater effort will be needed to realize the and lead integrated United States Government get any bigger and therefore did not initially see QDDR’s vision. efforts, involving all U.S. departments and the same potential for problems. The chief agencies with relevant capabilities, to prepare, plan advocate for the creation of S/CRS said in a

Heather Price is a Government & Legal Affairs Associate for, and consult stabilization and reconstruction private interview with the author in 2009 that, in at ISOA. She previously served at the Office of Iraq at the activities.‖ [1] As such, NSPD-44 highlighted the retrospect, Powell and Armitage felt as if they Department of State, where she worked closely with the Training division of S/CRS. importance of the nascent S/CRS, an office were set up for failure, a sentiment given some Contact Heather at [email protected]. perhaps ironically championed by high-ranking  18

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Government & Legal Affairs

 17 | The Future of S/CRS — What’s in a Name?| Heather Price credence by the facts. At its inception, S/CRS was out, ―to date, S/CRS has not been given a coordinate, and institutionalize U.S. government only given a pittance of $17 million with a 37- principal role in any major crisis.‖ [2] S/CRS has civilian capacity to prevent or prepare for post- person staff, compared to the 80 personnel never fully asserted its voice in the interagency conflict situations, and to help stabilize and requested, inviting magnanimous offers from community whose tension it was supposed to reconstruct societies in transition from conflict or DoD to fork over bodies and funding. reduce during planning stages for post-combat or civil strife, so they can reach a sustainable path post-disaster reconstruction. Further, S/CRS toward peace, democracy and a market econ- S/CRS was created to streamline interagency appeared on State’s organization chart as an ―S‖ omy.‖ [3]Congress has been historically hesitant efforts for post-combat stability operations. It office, which in theory means the office should to appropriate funds for S/CRS, perpetuating S/ gives appreciable focus to training for civilian have operated directly under the Secretary of CRS’ status as a blatantly underfunded and thus deployment to non-permissive environments, yet State. However, S/CRS has never had the unacknowledged office. it must be considered that perhaps S/CRS was prestige associated with such a label. created in the Beltway strain of non-permissive Funding aside, the efficiency of S/CRS’ opera- environments. The office was theoretically Indeed, perhaps the organization chart as of tions demands examination. Paltry funding is not designed to mitigate interagency tension, but in summer 2010 can be taken quite literally. In Foggy the only reason S/CRS has run into walls trying to light of its initial budget and staffing misfires, did Bottom culture, perception is reality. S/CRS is assert its presence in the interagency environment. it succeed? represented on paper by a small bubble at the S/CRS has been crippled by inefficient overlap bottom of the organization chart, potentially with other bureaus and offices, as well as The Forgotten Office reflecting its status in the State Department. In inefficiency in its own programs. For example, the addition, S/CRS is housed in the farthest annexes pillar responsible for training has accurately Fast forward roughly five years. By summer 2010, of the State Department, in a similar reflection of identified the need to engage civilians in training S/CRS looked about the same as it did in 2005, in its relevance. In large part, S/CRS functions like it programs prior to deployment to semi- or non- the interagency community as well as within the coincidentally appears on the organization chart – permissive environments. However, much overlap State Department itself, with the exception that the forgotten, off to the side, neglected office exists between these training programs and those there was even less mention of the office. Despite struggling to speak up from the sidelines in run by regional bureaus for individuals deploying considerable overlap with other bureaus and Springfield, Virginia. as members of Provincial Reconstruction Teams offices, several at DoS were still unfamiliar with (PRTs). Also, though these training programs are the office. State offices exist in a hierarchy of Just as Powell and Armitage’s feeling of being set an excellent step in the right direction, they lack sorts, although this hierarchy is perhaps more up for failure was confirmed by the meager self-sustainability at best and overall cost- imagined than real. To an extent, this hierarchy is staffing and funding S/CRS was given at its effectiveness at worst. The training is organized determined, more or less, by the alleged creation, the assertion that S/CRS is State’s with the purpose of preparing a Civilian Response ―pertinence‖ of the office. It is hardly surprising forgotten office is given credence by its lack of Corps, composed of active and standby members, that few would be familiar with the mission, or evolution by the eve of the QDDR’s release. S/ but the CRC has hardly been used to the degree even existence, of S/CRS, when, as its former CRS is still charged with a disproportionate that it could have been, or perhaps should have coordinator Ambassador John Herbst pointed mission for its current funding — to ―lead, been. The CRC’s nearly 1,200 members do excellent work throughout the world, but they have never been used as the primary mechanism for reconstruction assistance where a trained response corps was badly needed, for example, in Haiti in early 2010.

S/CRS and the QDDR

The long-anticipated Quadrennial Diplomacy and Development Review (QDDR) was released in late 2010, and will have interesting consequences for S/CRS. The QDDR aims to bolster the competence of, and, hopefully, confidence in the State Department’s capability to effectively administer its post-conflict responsibilities. Essentially, the QDDR translates to a bulldozing of the organization chart. S/CRS will be stripped of ―S‖ status and moved to the jurisdiction of the Undersecretary for Civilian Security, Democracy,

An intimidating organizational layout. Photo: DoS, Emphasis added by ISOA  31

Journal of International Peace Operations 18 Volume 6, Number 5 — March-April, 2011

Sir John Holmes | Q & A

Naveed Bandali Improving Humanitarian Response

An Interview with Sir John Holmes

Sir John Holmes (left). Photos: UN Norway; Stock

IR John Holmes, GCVO, KBE, CMG, is mediation and peacekeeping. This whole mix of communities/worlds. In the future we will face director of The Ditchley Foundation (September issues requires a well integrated approach. If you more crises that involve not just a single factor, S 2010 to present). He recently served as Under- look at our experiences in Sudan, or in Congo, or but a combination of disaster-producing factors Secretary-General for Humanitarian Affairs and most recently in Côte d'Ivoire, you can see that — climate change, desertification, scarcities of Emergency Relief Coordinator at the United Nations there are big challenges there about how to get the water and land — where we have to deal not only (January 2007 to August 2010). A career diplomat, Sir best leadership and the right coordination on the with the immediate consequences of these factors, John previously served as British Ambassador to France ground, in terms of providing basic security and but also with long-term consequences, in terms of (2001 to 2007) and as British Ambassador to Portugal reforming the security sector of countries, while at producing food security, better water manage- (1999 to 2001). the same time providing jobs, and so on. This is a ment, agricultural investment, extra employment, major challenge not just for the U.N., but for and not least, rapid population growth. JIPO: What are the greatest long-term challenges that the regional organizations like the African Union United Nations (UN) will face over the next decade? (AU), and sub-regional organizations like the JIPO: Drawing on your experiences as at the U.N. Economic Community of West African States humanitarian chief, what were your greatest accomplish- Holmes: That is a big question! Every subject on (ECOWAS). ments and challenges? earth is a priority subject for the UN system, in a sense. There are many major, fundamental To take an issue that I am even more familiar Holmes: One thing I was able to achieve was to challenges that the UN is going to have a key role with, humanitarian response, we can see a lot of continue a process of reform, modernization and in, like climate change, energy scarcity, water, food challenges there also. We need to look at whether professionalization of humanitarian response. security, nuclear disarmament and so on. the current system is well designed to deal with huge disasters like the earthquake in Haiti last year The tsunami of 2004-2005 was a wakeup call for I think that one huge challenge for the next ten or the floods in Pakistan, which affected millions the humanitarian community because the years is the role the U.N. can play in stabilizing of people, and overwhelmed not only local response was effective in some ways, but not as fragile states through conflict prevention, conflict governments but international organizations. I good as it should have been. Darfur in 2003-2004 think we need to look at the probability due to was also a wakeup call in how to deal with conflict

Naveed Bandali is Senior Analyst of the Information climate change of more and greater disasters in related issues. So as a result of those two seminal Operations Division at Pax Mondial Limited and Contrib- the future, and how we are going to deal with events, a process of reform was put in place: first, uting Editor of the Journal of International Peace Opera- tions. Contact Naveed at them, for example by reducing the barriers improve coordination within particular sectors — [email protected]. between the humanitarian and development  22

Journal of International Peace Operations 19 Volume 6, Number 5 — March-April, 2011

Q & A | Sir John Holmes

 19 | Improving Humanitarian Response | Naveed Bandali water, health, food, etc. — to make sure that there Holmes: The cluster approach is part of the disasters before they happen, rather than focus are no gaps or duplication and that there is a reform process put in place after the Indian too heavily on the response. Investing in Disaster single organization responsible for ensuring that Ocean tsunami to ensure that the sectoral Risk Reduction (DRR) should always be a better the response is good; second, improve coopera- response is much better coordinated. I think it has investment because obviously you are preventing tion between the U.N. and non-U.N. organiza- been successful, and I think the response in Haiti deaths and damages, if you get it right, rather than tions because coordination and partnership are would have been even more difficult to mount if just dealing with them after they happen. Having fundamental in the fragmented and diverse we had not had the cluster system in operation. said that, there are clearly situations where the humanitarian community; third, improve local government and civil society are over- leadership of humanitarian coordination on the The cluster system is not a perfect approach to whelmed by the scale of the disaster. What we ground by providing better trained and better every response. Nor is it a one-size-fits-all need to ensure in these cases is that the interna- qualified people; and fourth, make sure that the concept. It may be more necessary in low-capacity tional response is as effective, well-coordinated right kind of financial assistance is made available, states like Haiti and less necessary in countries like and well-directed as possible. particularly at the beginning of new crises or for Indonesia, which has a much greater capacity to crises which are neglected. The UN’s Central deal with its own disasters. One of the things we JIPO: In your view, what lessons can be drawn from the Emergency Response Fund was created for this need to ensure is that the cluster system works international response to the January 2010 earthquake in purpose. closely with host governments and fits into their Haiti, which may be considered the greatest humanitarian way of organizing things as well. Meanwhile, there catastrophe of the past couple generations? Those were reforms that were started just before I always needs to be cross-sectoral coordination of came on board in 2007. I saw it as my role to some kind in place as well. Holmes: I think there are a lot of lessons we can make sure that they were carried through and learn from Haiti. The immediate humanitarian became part of international response. And I response, although a huge struggle, was overall think that we achieved good results in all those reasonably successful in saving lives and providing areas. But that is not to say that the system is now the basics in terms of food, water, shelter, medical perfect. In fact, it still remains very fragmented care and protection of the most vulnerable. Now between many organizations. I think it remains to we are in a rather different situation where be seen how well the system can adapt to the reconstruction is very slow, so I think there are a prospect of new, major humanitarian challenges lot of questions about how we can get out of the like Haiti and Pakistan in 2010, which have present difficulties. overwhelmed the system. Still, we need to perfect the cluster system to There is also a challenge in dealing with difficult make sure it works even better in the future. political situations, such as those in Sudan or Sri Second, I think we need to be much more Lanka or Afghanistan, where the host govern- conscious of local sensitivities, needs and views. ments do not want their affairs poked into by This is not a new criticism, but it was particularly humanitarian organizations, and therefore are Photo: Marco Dormino/UN tricky in the Haiti context because the capacity of inclined to try and restrict their activities. One the local government and other civil society fundamental issue there is how far humanitarian JIPO: Following the December 2004 Asian Tsunami, it organizations was so overwhelmed by the scale of organizations should attempt to stay in these was arguably local actors that had the most effective impact the disaster that it was hard for them to get places, and at what point they should say that we in disaster relief efforts. To what extent should the involved. Nevertheless, we must make every must withdraw until our principles are respected international community focus its efforts on helping to build effort to involve local actors. by the government. The instinct is always to stay, local capacity and a sense of ownership? to try to make sure that we can give the help I think a third lesson is the importance of DRR which is so badly needed, but sometimes we may Holmes: I think it is extremely important for the and building up local disaster management have to be tougher and more insistent on the right international community to build up local capacity. We need to focus even more on these conditions and principles being respected by host capacity. Local response is likely to be more than in the past because then clearly deaths can be governments. effective, more culturally sensitive, more direct, averted on a large scale, the preparation can be and have more lasting effects than international much better, and society can be much more JIPO: What is the virtue of the UN Office for the response. So I think it is very important for us to resilient. If we compare what happened in Haiti Coordination of Humanitarian Affairs cluster approach? do more than we have done in the past to increase with what happened in Chile, an even bigger Is the same framework or system supposed to work in such not only the local capacity of governments, but earthquake a few weeks later, one can see the diverse situations as disaster relief and post-conflict also that of civil society — it is very important for difference between badly prepared and well reconstruction; or for operations in lower capacity states, big, international NGOs to do more to help prepared societies. There are other lessons too, such as Haiti, versus more middle-income countries, such as smaller, local NGOs to increase their capacities. about the need to have a closer relationship with Pakistan? We also need to do more to reduce the risk of  46

Journal of International Peace Operations 22 Volume 6, Number 5 — March-April, 2011

Insight

Meg Manthey Local Solutions to Global Problems

Sustainable development and the role of local nationals

Future leaders to lead stable development. Photo: Albert Gonzalez Farran/UN

STABLISHING mutually beneficial tions. Whether the audience is a professional show that their management teams are always relationships with local national popula- military group, such as the Armed Forces of striving to expand and develop their international E tions is often critical to private companies’ Liberia, Sudanese People’s Liberation Army or workforce and provide opportunities for locals to operational success in conflict and post-conflict Afghan National Army, or a group of civilian make meaningful contributions to projects that areas — PAE credits much of its success to laborers, we have found that the first step in will impact their country. developing strong relationships with local building local capacity is to provide technical nationals. Whether building peacekeeper base training and mentoring sessions. Gaining skills Our program management team in Djibouti camps in Darfur or helping to train the new through technical training programs increases the recently created a local national internship national army in post-conflict Liberia, our practice local workforce’s confidence and empowers the program through which students at a nearby of hiring local labor has evolved into a strategy for group to take ownership of projects once the vocational school were able to refine their developing capacity within the host country contractor’s mission has concluded. professional skills under the instruction of annex population. This strategy, which has been managers in various professional arenas, including implemented successfully in Liberia, Djibouti and There are also significant benefits for the carpentry, electrical work, vehicle maintenance Afghanistan, among other countries, combines individual: once trained to meet one project’s and power generation. The vocational school was three key aspects of employee development and is standards, a local national’s professional extremely pleased with the program and reported implemented with the support of management marketability increases dramatically, making them that the majority of students who had participated teams. better prepared to pursue additional opportunities in the internship were able to find jobs soon after to advance their professional standing. In graduation. Offering free, hands-on training to Technical Training Afghanistan, our program management teams select members of the local community was not have noted that several local national employees only an important step towards addressing the gap Technical training is a common element among have pursued an entrepreneurial path after in technical skills, it also strengthened the many stabilization missions and one of the most employment with companies such as PAE. After company’s relationship with the vocational school, immediate methods with which companies can gaining technical training in vehicle maintenance making a favorable impression on the program develop local capacity in host country popula- and repair through our program, they were customer and building a sense of corporate subsequently able to open their own vehicle repair partnership with the local community. shops in Kabul and the surrounding areas. Meg Manthey is a Communications Manager at PAE, Inc. Contact Meg at [email protected]. Companies in the stability operations industry must think from a local perspective, and therefore  24

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 23 | Local Solutions to Global Problems | Meg Manthey

Ethical Business Training This training is particularly critical for local Career Development national employees because their employment In addition to the obvious need for a technically with us may be their first professional experience Once employees complete training and are adept workforce, companies should recognize the or, more importantly, the first time they will be expected to begin applying those lessons to their significant value of providing their workforce, held accountable to policies based on the U.S. work, program managers observe the workforce including local national employees, ethical Federal Acquisition Regulation requirements. This carefully for those with potential to take on new business training. Our Ethics and Business training serves the interests of both the company positions and/or leadership opportunities within Conduct program is comprised of a series of and the individual employee as it mitigates the the company. Like all companies, our goal is to interactive educational modules that explain the company’s risk of contract violations based on make a return on the resources we invest in our ethical and legal requirements of government local infractions, and increases the employee’s workforce and retain top talent whenever possible contracting and how those requirements shape value as a technically skilled individual with the in order to develop a leadership pipeline for our company policies and our expectations of all business acumen necessary for advancing to a programs. Towards the end of a mission, program employees. The ethics booklet is translated into management role. managers will attempt to place successful over 13 languages, and ethics awareness posters, employees in other programs to provide which encourage employees to call the toll-free Beyond training the local national employees, opportunities for continued employment after and anonymous ethics phone line should they interactive discussion sessions on business ethics project demobilization. have any questions or concerns, are visible at all help the company to identify areas of common sites. In certain environments, where booklets and cultural misunderstandings and proactively One particularly successful example of this posters are not an effective means of communica- address issues that may arise between a local practice involved a local national employee from tion, site managers adapt as necessary to engage national staff member and American national or Darfur. He so impressed his colleagues and employees in training: gathering in a dining hall or third country national management team. Though management team with his enthusiasm for under the shade of a tree to discuss employee some adaptations may be necessary to make professional opportunities and personal expectations, or acting out scenarios to demon- training modules relevant to the local populations development that he was re-hired as a third strate consequences of inappropriate behavior. and the jobs they perform, we have found that country national to support another project in taking the time to demonstrate our company Liberia. Not only did this allow him to financial Our goal is to establish a common understanding culture, sense of business ethics and responsibility support his family, he also gained new technical across the many countries in which we operate to local national employees helps establish a sense skills as a logistics manager, used his free time to and across all levels of our workforce of the of partnership and trust. study for a high school equivalency test and company’s expectations for professional behavior. volunteered at a local orphanage. By the time his second project drew to a close, he had qualified for a scholarship to attend college in the United States. He is currently enrolled as a freshman at the University of Rochester and is committed to return to Sudan following the completion of his studies to work towards the promotion of peace and/or sustainable economic development.

Companies should invest heavily in the develop- ment of their employees, as providing challenging opportunities and rewarding careers is in the best interest of both the individual employee and the company. Once identified, local national leaders can play an important role in establishing a relationship between the company and the local government and community at large: certainly by leveraging connections to community leaders, but also through their knowledge of the region’s customs and protocols. By fostering local national employees’ leadership skills and elevating them to management positions, companies can gradually increase the capacity of the local workforce and prepare it for independent operation, with a hierarchy of local leaders in place to lead

Strengthening community partnerships. Photo: Agnieszka Mikulska/UN  31

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Jack Segal The Afghanistan Transition

A road yet to be traveled

Photo: Specialist 2nd Class David Quillen/US Navy

T the November 2010 NATO Summit, Union address), although the numbers are unclear. Washington and other capitals of an enduring the Allies agreed that "Afghan forces With popular support for the Afghan mission security relationship thereafter, but recent reports A [would] be assuming full responsibility for declining and Congress looking for places to cut from Berlin and London suggest that the 2011 security across the whole of Afghanistan by the the deficit, there could be many on Capitol Hill start date for withdrawals and 2014 handover end of 2014." While a seemingly distant objective, who will argue for an accelerated departure from completion date are gaining a strong constituency it is not too early for private sector contributors to Afghanistan on political and financial grounds. in Allied capitals. consider how the move to an Afghan-led However, the ability to withdraw will depend on campaign will affect them. Indeed, although the whether there are sufficient trained Afghans ready The Transition Process Allies set the 2014 target date, the handover could to shoulder the burden. come earlier depending on the ability and will of Three elements need to come together for an the Afghans to take greater control and the desire The Afghan attitude toward transition is orderly and timely transition. First, the key players in NATO capitals to relinquish control. complicated. Some regional Afghan leaders worry — in this case, the troop contributing nations and about a decline in security once the Allies leave; the Afghan government — need to agree on the Undoubtedly, several nations will choose to pull others fear that the lavish flow of western funding criteria and process for the handover. Work on out before 2014 — the Netherlands has already will dry up as the Allies shift to a supporting role. this task is well underway. Second, there must be a done so. Although the Dutch government Some Afghan leaders, particularly those less viable system for securing the countryside, either subsequently decided to return to Afghanistan this comfortable with the Allied presence in general, by having the Afghan National Security Force year, its role is strictly limited to sending trainers are no doubt eager to get NATO forces out of the (ANSF) replace NATO forces or by empowering to relatively safe province of Kunduz. Indications way, whether it is so they can pursue their own the local population to handle its own security are that Canada also intends to end its combat agendas or due to the understandable skepticism where the ANSF presence is not scheduled to role this summer, but is aiming to provide about of any extended international presence. To remain. Lastly, there must be a sustainment plan 950 trainers later this year. The United States Afghans interested in the former, the NATO to ensure that the residual local or ANSF forces plans to begin withdrawing some forces this July presence has been bad for business -- be it can support themselves. This final element is (a decision reiterated in the president's State of the smuggling, drug trafficking or simply wielding complex and requires a longer discussion in a unfettered political power. For his part, President future article. Hamid Karzai himself laid out the objective of Jack Segal is President of the Center for a New American Security. having security in Afghan hands by the end of A new body known as the Joint Afghan-NATO Contact Jack at [email protected]. 2014. No doubt he is reassured by signals from  26

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 25 | The Afghanistan Transition | Jack Segal

―Inteqal‖ Board, or JANIB, will manage Securing the Countryside literacy that most Afghan recruits receive in their transition, while the Commander International initial training. NTM-A is cognizant of this gap Security Assistance Force (COMISAF), its civilian The NATO Training Mission-Afghanistan (NTM- and is already providing mandatory literacy counterpart the NATO Senior Civilian Represen- A), led by Lieutenant General Bill Caldwell and training for all ANSF recruits. tative (General David Petraeus and Ambassador Dr. Jack Kem, has been making huge strides in Mark Sedwill), and the International Security preparing the ANSF for the inevitable day when Or is higher literacy actually required? Can Assistance Force (ISAF) three-star joint command the Afghans will have to take charge of the entire standardized pictograms and other non-alphabetic and regional commanders, along with their security mission. The next two years will see an means be used to display information to guide the Afghan counterparts, will execute it. The concept enormous surge to the tune of $20.9 billion in soldier to a solution and to check the result? The is to gradually hand over increasing responsibili- new funding for ANSF construction, training and same approach might be applied to intelligence ties to the Afghans while Allied mentors keep a infrastructure. These large investments have analysis, to logistics, or inventory control. With close watch on the progress toward full transition. strong bipartisan support in Congress as they are Congressional belt-tightening destined to include inexorably linked to the future withdrawal of even NTM-A at some stage, it is likely that Private sector players could be greatly affected by NATO forces. simpler, cheaper solutions will find a sympathetic transition. As locales shift from NATO to Afghan audience both at NTM-A and on Capitol Hill. -led, the security of logistics routes, the legal status The near-term priorities are increasing the of contract employees, tax exemptions, customs ANSF’s combat forces and uniformed police, but The Elephant in the Room procedures and policy on weapons may all be the pressure to get more ANSF into the forefront affected. The ISAF command is aware of these creates a dilemma for General Caldwell. As the There is one key weakness that has been considerations, but companies would do well to ANSF grows larger and more complex, the consistent up to the present: the lack of trainers. keep a close eye on activities where they have demands on the institution will require higher- NTM-A has sought more countries to fill its employees deployed or operations ongoing, since level skills, better training and better-educated requirement for 2,800 personnel, but a gap of transition decisions are likely to be kept confiden- personnel. The initial efforts to build up the more than 700 remains and will grow rapidly as tial as long as possible. critical enablers (e.g., transport, logistics, the level of NTM-A's effort increases. While intelligence, medical) are already underway but numerical ANSF goals will probably be met even Additionally, numerous contracting opportunities Caldwell readily acknowledges this is just the with the shortage of trainers, the quality the in Afghanistan are likely to emerge as the ISAF beginning. If the ANSF is going to be ready for ANSF needs in key specialties can only be assured nations begin to wind down their operations. transition on a large scale, it is quickly going to if the full quota for trainers is met. Again, this NATO/ISAF guidance emphasizes using local have to become far more self-sufficient. This may seems to be another area where the private sector firms and creating employment opportunities for be yet another area where the private sector may may participate. Afghans, as do NATO Training Mission- be called upon for assistance. Afghanistan’s "Afghan First and Afghan Made" The ANSF's enablers will undoubtedly remain in Procurement initiatives, so ISOA members may One example is in regards to transportation. The Allied hands for some time. But as the West’s find the best opportunities lie in working with ANSF is getting rid of its crude, but easily- combat role winds down and political interest and reputable Afghan partners. U.S. contracting offers repaired, Soviet-era vehicles in favor of HUMMVs support wanes, the demands on Afghans will are readily accessible through a number of and Ford Rangers. While both are superb vehicles, grow. By pursuing pragmatic solutions now to the websites, including Defense’s website and the U.S. they require a computer to diagnose any support challenges that lie ahead, the private Army’s Acquisition page. problems, which requires a higher degree of sector could contribute in a very tangible way to the success of the shift to Afghan-led operations.

The author received valuable suggestions from ISAF and NTM-A, but the views expressed herein are those of the author and do not necessarily reflect the views of the National Defense University, the U.S. Government, NATO, or the NTM-A. 

Endnotes

1. The Summit declaration is available at www.nato.int/ cps/en/natolive/official_texts_68828.htm. 2. "Integal" is the Dari word for "transition;" Dari being one of Afghanistan's widely-spoken official languages. 3. See NTM-A's first annual report: http://www.ntm- a.com/documents/enduringledger/el-oneyear.pdf.

Preparing for the handover. Photo: Chief Petty Officer Brian Brannon/US Navy

Journal of International Peace Operations 26 Volume 6, Number 5 — March-April, 2011

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Dr. Brent Musolf Treating a Nation

The fragile state of healthcare in Juba

How to heal a nation’s wounds? Photo: Albert Gonzales/UN

IX years have passed in Sudan since the oversight and regulations of medical providers South Sudan, with a population boom of 160,000 signing of the 2005 peace agreement ended have been implemented, and credentials and in 2005 to an estimated 1.4 million today. Modern S a twenty-year civil war in which two million licenses are now required to provide medical care, shops, office buildings, and houses are springing people were killed and over four million were thus assuring patients that anyone calling to life. However, most of the residents still live in displaced in a nation with little or no medical care themselves a medical doctor has actually received family compounds with houses constructed of for its people. The clinics in South Sudan were a medical degree. mud and straw. As with other cities throughout few and far between, had little or no equipment or the developing world, Juba’s rapid growth has led quality medication, and were staffed with Over the past few years, through the efforts of to an increasing sanitation problem. In addition to overworked and underfunded medical profession- NGOs and other private organizations, medical permanent residents, new ―villages‖ filled with als. It was not uncommon for the sick and injured clinics have spread throughout rural South Sudan. internally displaced people pop up daily. The to walk for two or three days to see a doctor. In Some of these clinics are converted houses, while inhabitants of these ―villages‖ live in close an environment that is rife with malaria, typhoid, others are little more than sheds constructed of confines in shelters constructed of bamboo and parasites, deadly snakes and a host of other corrugated steel, with a dirt floor, no running polypropylene tarps. Proper drainage and septic diseases, Sudan continues to suffer from some of water or electricity, and little medication. These fields are non-existent, and the resulting the highest mortality rates in the world. clinics offer the first line, and many times the only contamination is quickly becoming a source for source, of care for the rural people of South widespread disease. The lack of access to quality healthcare has Sudan. These clinics have continued to evolve and impacted both the Sudanese and the internationals multiply, though not as quickly as the country’s Based on U.S. standards, such as those outlined living in South Sudan, creating a crisis situation need, as poor infrastructure hinders expansion by the American Medical Association in 2008, a when one becomes sick or injured. However, efforts. During the wet season it is not uncom- city of 1.4 million inhabitants requires five things are slowly changing. The end of the civil mon for airstrips and roads to be unusable for thousand doctors. This ideal ratio of one doctor war has brought back many professionally trained weeks or months at a time. Still, operating clinics for every three hundred people clashes sharply former refugees who are now leading the charge see more than 300,000 patients a year. with the reality in Juba where there are less than to improve basic health services. Recently, one hundred Sudanese doctors and a few In Juba, South Sudan’s largest city, the availability international medical providers working at a

Dr. Brent Musolf is a Group Medical Director with Unity of comprehensive care is only slightly better. handful of clinics and hospitals. The clinics have Resources Group in South Sudan. Since the peace agreement, it has become the little equipment and even less medication with For more information, visit www.unityresourcesgroup.com center of government, progress and expansion in  28

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 27 | Treating a Nation | Dr. Brent Musolf which to treat the over 200 people that visit them Despite complexities involved in providing environment, which creates complications and daily. There are only four x-ray machines in the medical care in isolated environments, very few lengthens the time it takes for patients to get entire city. Advanced diagnostic equipment, international organizations have reviewed their lifesaving care. EKGs, defibrillators and the blood labs are health support requirements, and even with the equally scarce. existence of duty of care obligations, still fewer For example, recently an international worker was have a robust plan for dealing with chronic illness injured in an accident that left him with a For the international worker in Juba, becoming ill and injury. International organizations in Southern fractured spine. His company’s medic quickly or injured is a serious concern and the conse- Sudan should ask themselves a series of simple stabilized him, help was called, and a helicopter quences of waiting can be deadly. The past course questions: was dispatched. However, it did not arrive until of action for even minor illnesses has been a flight nine hours later. Unfortunately, once the patient to a Kenyan or Ugandan hospital. Recently this Do I have a current locally/regionally focused finally arrived in Juba, it was too late to fly him has begun to change with the opening of a medical treatment and evacuation plan? out of the country, and he had to be held number of private clinics. In 2006, Unity overnight. While the patient was in the air How will the patient be stabilized on site so he Resources Group opened its first clinic with traveling to a Kenyan hospital the following day, or she will live long enough to get to a higher international levels of medical care. South Sudan’s his European-based insurance company decided level of care? first public Level III Blood Lab opened in 2010, to redirect him to their preferred hospital facility, Has the medical treatment and evacuation which has allowed more illnesses and chronic unaware that the facility was closed to advanced architecture been tested? conditions to be accurately diagnosed, monitored care for the weekend. When the patient arrived at and rapidly addressed in South Sudan. Has this been formally communicated to all the facility he was admitted, but had to wait an staff to ensure wide awareness? additional thirty hours before receiving treatment. Most injuries or illnesses can now be treated in Does the medical provider understand our The patient eventually had surgery and was Juba. However, some patients are still referred to protocols for dealing with emergencies? transported back to his home country for the regional hospitals for levels of illness that are Has our medical provider been provided with remainder of his medical care. beyond the ability of local health providers. every employee’s medical profile including Referral and onward movement is seldom simple. family and medication history? Such cases, in which errors and assumptions delay Juba International Airport has no runway lights care and jeopardize the patient’s life, demonstrate and aircraft are not legally allowed to land or take While this is all being initiated in Sudan, the need for due diligence at many levels. When off after six o’clock each evening. Any aircraft not coordination efforts should simultaneously take illnesses or injuries occur in isolated environ- on the ground by four o’clock is likely to be place between the employer and their medical ments, time is of the essence. Malaria can go from staying until the next day. If a patient is to be insurance company. Many times the insurance mild to life threatening in a single day. The transported on the same day of a serious incident, company with which organizations and/or likelihood of recovery from a major trauma or the injury or illness must be reported and an individuals work have little to no working injury decreases exponentially with every hour that aircraft ordered by noon. knowledge of Africa or the unique Sudanese passes. In order to ensure that ill and injured workers in isolated environments receive care as quickly as possible, companies should perform due diligence checks on the following:

What are the terms of your medevac insurance policy.? What are your rights? What are the insurance company’s responsibilities? Can the health insurance company override the medical provider’s decisions on care? Where are the regional evacuation hospitals? What is required to transport someone to the facility? Does the insurance company have an ongoing relationship with the regional evacuation center? What are the capabilities of the regional centers? What are their access policies? What are the procedures to ensure that your medical provider and insurance company communicate directly?

Filling in the gaps. Photo: Brent Musolf/Unity Resources Group  32

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Sarah Holewinski In Defense of Human Rights

How the ICoC can assist the fight for human rights

Counting the ways to improve humanitarian intervention. Photo: Spc. Jeanita C. Pisachubbe/US Army

HANKS to a group of conscientious Some civilians become targets of rogue contrac- on the ground. governments, contractors and civil society tors, while others get caught up in the crossfire. It T groups, the International Code of is easy to focus only on the former, because the Some militaries and contractors are already Conduct (ICoC) was finalized in November 2010 solution is easy: a contractor has obviously recognizing and responding to unintentional as a set of good-practice principles for private violated not only the ICoC, but also domestic and civilian suffering, despite no legal obligation to do security contractors. The human rights commu- international laws. Any redress mechanism set up so. The United States military, which recognizes nity sees a lot of promise in these principles, not by the committee will likely include putting those an obligation to abide by the Laws of Armed least because civilians harmed on the battlefield laws to use through legal claims and reparations Conflict, allows its commanders a discretionary might finally have their losses recognized and for damages. fund from which they can pay a condolence (a properly addressed. symbolic gesture of regret) for civilian deaths, But what of victims killed, wounded or otherwise injuries and property damage inflicted during Most promising is the impending creation of an harmed by contractors in situations where no one legitimate combat operations. The typical amount oversight and governance mechanism — or more is legally at fault? The ICoC must take into for a death or injury in Iraq and Afghanistan is simply, a watchdog to monitor what contractors consideration the needs and expectations of all $2,500 — a low figure, but nevertheless who sign onto the ICoC are doing right and survivors, including those harmed when the worthwhile. Again, these are payments made wrong. That hard work will be done over the next battlefield turns to chaos. It would be a shame to outside any legal framework. 18-months by a committee. Their discussions so overlook an entire cadre of war victims, as the far have focused on what should happen to rogue laws that govern warfare already do. Security contractors are not part of the military contractors, from concerns about domestic chain of command, so they do not have access to murder laws and investigations, to criminal An amends process for these victims should be military funds like these. Still, many firms did pay liability and prosecution. This committee, though, explicitly embedded into the ICoC. Put simply, compensation in Iraq. U.S. counterinsurgency will only get the job half right if they do not also contractors should begin collecting data, review doctrine applies whether you were a soldier or a focus on what the victims of contractor violence claims of harm and pay compensation when contractor: every victim who receives amends will receive for their hardship. appropriate. Some of the key issues to consider represents a chance to bolster relations with the include what constitutes amends for harm; liability locals, decrease terrorist recruitment and create a

Sarah Holewinski is the Executive Director of the Cam- fears of particular concern to the contracting safer operational environment. paign for Innocent Victims in Conflict (CIVIC). community; and how to marry such a principle of Contact Sarah at [email protected]. making amends to victims with practical solutions  30

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 29 | In Defense of Human Rights | Sarah Holewinski

Architects of the ICoC oversight mechanism have amends should make an effort to create a standing rights have been violated by contractors receive a chance to build on and incorporate lessons company policy for tragic situations, if and when nothing. But civilians harmed by run-of-the-mill learned from these amends efforts — from they happen. combat operations, and thus overlooked by proactive, culturally appropriate overtures to domestic and international mechanisms of village elders after a tragedy, to respectfully So why not simply require a civilian compensation redress, shouldn’t also be overlooked by the providing civilians with information about what provision in every contract inked in support of an ICoC. happened to their loved ones and tangible armed conflict? The answer I continually hear is compensation for losses. that contractors fear liability for inadvertent One idea put on the table by ICoC negotiators is civilian harm. To wit, most of the contractors that an independent global complaint mechanism that When a contractor is tied to a warring party — pay compensation do so under-the-table because would accept claims of harm filed by civilians, whether to its military or to a civilian agency — Western courts might use such payments to prove host governments and civil society. To ensure it investigations, payments and negotiations with admission of guilt. Even if such cases are benefits all victims, the mandate should include victims’ families can be coordinated. The eventually thrown out for lack of wrong-doing, a acceptance of claims for harm contractors have Department of State recommended prompt offers contracting company could spend 500 times as unintentionally caused civilians, and a procedure of condolences to civilians killed or seriously much to defend itself in court as they would have to investigate and provide timely amends for that injured in Iraq and reportedly approved over offered in compensation to the family. harm. Furthermore, implementation of the $132,000 in such payments in 2007. The complaint mechanism’s decisions must ensure Department of Defense on occasion paid If, however, signatories to the ICoC agreed to some promise of accountability for the victim, lest compensation for harm their contractors caused, accept claims of harm, proactively conduct the effort ring hollow to civilians who receive informally bringing them into the military chain of investigations and provide immediate, tangible nothing in return for their losses. command. This was not a policy spanning all amends to all civilians they unintentionally harm, agencies involved in Iraq, nor did the U.S. such payments or other dignifying gestures would Finally, while the ICoC’s job is to set out the government commit American taxpayers to more likely be seen as a desire to recognize and principles by which contractors should dignify covering all civilian harm caused by contractors, assist civilians — a routine matter of common civilian harm, contractors also have a duty to so some victims received help while far more did policy, not an immediate indication of guilt. That implement those principles appropriately on the not. said, no provision of amends should negate a ground with their own creative and effective ideas victim’s legal recourse for wrong-doing by the for self-reflection and accountability. For example, Going forward, contractors tied to a military force contractor under domestic or international laws. since companies are often required by contract to should coordinate efforts and ensure every civilian immediately depart a combat scene, civilians harmed receives the same treatment. Contractors Human rights advocates want civilians harmed by cannot identify the contractors who harmed them, not affiliated with a military force or those contractors to get the full spectrum of justice nor do contractors have the opportunity to affiliated with a branch that does not make owed them. Even now, too many civilians whose conduct their own investigations. Some contrac- tors in Iraq proposed marking all their vehicles with large identification numbers, which when combined with force tracker-records, could give civilians evidence to file a claim of harm. While the idea never made it to the streets of Baghdad, this kind of practical solution is exactly what contractors themselves can do to bolster accountability. Such solutions could facilitate the work of the complaint mechanism and ensure real follow-up takes place to address the complaint and make amends for the harm.

The ICoC must not only seek to prevent future harm, but dignify those who are harmed when protection fails. No matter what mechanism comes out of these next months of discussions, it must ensure accountability beyond only egregious contractor behavior. It must seize this opportunity to ensure that contractors also make amends to civilians who they unintentionally harm, not leave them to suffer the absence of any real recognition or amends.  Securing elections in Liberia. Photo: Eric Kanalstein/UN

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 24 | Local Solutions to Global Problems | Meg Manthey alternative activities when their original projects community partnerships at the site level, institutions until they are self sufficient and not have concluded. companies must maintain a similar mindset at the reliant on foreign involvement. What better way corporate level as well. For example, company to accomplish this goal than by reaching out to Corporate Support newsletters should feature regular profiles on the local labor pool from the start and becoming a employees from program locations and advertise trusted partner in the community? What better While project management must cultivate most open positions around the company to encourage way than to nurture relationships with high relationships with local nationals and build employees to extend their career with multiple achievers from the local community and provide projects. Special recognition programs should opportunities for continued employment and include local national candidates to highlight the professional development? Local nationals serve significant ways in which they contribute to the as invaluable sources of on-the-ground informa- organization as a whole, and also to incentivize tion and local know-how. Contractors can benefit employees to seek continued employment once from advanced warnings of brewing tensions in they have satisfied their initial contract. the community that may later become security concerns, and from local advice on topics ranging Philanthropy programs can be structured with a from what precautions should be taken for annual focus on the local level to ensure that charitable monsoon seasons to what vendor supplies the giving is directed to where it will have the most best concrete. impact and to where it will best establish a company’s presence as a corporate partner. Cultivating partnerships within a community not Whenever possible, management teams must try only helps contractors complete their work on a to communicate the value of their local national better tactical level, but also helps to attract and employees and impress upon them the company’s retain top talent and establish a corporate intentions to create true, mutually beneficial presence. As a general practice, it makes good partnerships. business sense and, by preparing the local population to self-perform key development PAE works to enhance stability and build capacity activities, contributes to our customers’ strategic in developing areas, and to assist weakened civil goal of developing local capacity.  Photo: Fred Noy/UN

 18 | The Future of S/CRS — What’s in a Name?| Heather Price and Human Rights, operating under the title of will succeed in highlighting the responsibility the is possible — and hoped — that the QDDR’s Bureau of Conflict and Stabilization Operations. new bureau holds. This could bolster its respect stipulations will result in more than the continued While a ―bureau‖ might be in theory a step down within the interagency community and give it a neglect of S/CRS. Talking about the problem is from an ―S‖ office, it is important to remember new voice with which to assert its importance in only the first step in solving it. The QDDR is S/ the organization chart once again. Visually, S/CRS post-conflict planning. Simply put, this demotion CRS’ last hope to turn the sad song around. Only has moved up from side-note, bottom page status in rank could be the promotion S/CRS has time will tell if this newfound attention from the to a newly renamed bureau further up on the desperately needed. top will indeed bolster the capacity of the State chart. Ironically, this demotion figuratively and Department in the realm of stabilization and literally moves S/CRS into the spotlight, a gesture On the other hand, it could be that the QDDR reconstruction, or if S/CRS will merely change badly needed for the under-acknowledged office. has sought to clean the proverbial house and from the forgotten office to the forgotten bureau. On the eve of the QDDR release, it could be said failed. It identified what needs to be cleaned — that for DoS’ stabilization and reconstruction step one — but missed step two: actually initiating These views do not necessarily reflect those of the U.S. capabilities, it was time for DoS to take a sad song the cleanup. If this were to happen, it would be Department of State or the U.S. Government.  and make it better. The QDDR is a step, but only like taking a sad song and singing it off-key. time will tell in which direction this step is headed. Endnotes There are two possibilities for the implementation Talk and (no) action? of this QDDR. 1. NSPD-44, available at http://www.fas.org/irp/ Implementation of the QDDR is of the utmost offdocs/nspd/nspd-44.html. At this stage, the QDDR has adopted a pet and importance for the future of the Department of 2. Naveed Bandali, ―Coordinating Reconstruction and Stabilization: An Interview with Ambassador John E. given it a name, but so much more needs to be State’s capacity to handle post-conflict situations. Herbst (Ret.),‖ Journal of International Peace Operations done to nurture it and develop it into something If left to rust in a new bureau, the QDDR’s Vol.6, No. 4, Jan-Feb 2011 worthy of its critical mission. One possibility that organizational restructuring will be nothing more 3. S/CRS mission, from www.state.gov/s/crs. could come from this review is that the common than magnanimous talk with no substance. State’s State strategy of renaming and reshuffling offices competence in S&R is hanging on by a thread. It

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 28 | Treating a Nation | Brent Musolf

What level of care can your medical provider offer? When is it necessary to move to a higher level of care?

Even when this has all been done there is still the possibility that things will go wrong. However, the likelihood is significantly less. The ability to show due diligence also offers a level of protection in the event of litigation.

Many international organizations mistakenly believe that because South Sudan does not have the same security issues as Afghanistan or Iraq that it is a benign country. To the contrary, the local environment contains many hazards that make Sudan equally as dangerous as other countries in which private companies and South Sudan: a land of many hazards. Photo: Tim McKulka/UN organizations operate. into the world’s newest autonomous democracy. comprehensive medical plan in place that takes If the appropriate cautions are given, living and However, their capacity to help will be diminished into account the risks associated with doing working in South Sudan is a wonderful experi- if they do not do the necessary due diligence and business in such environments. Only then can the ence. International companies and organizations planning. It is imperative that any international private sector truly help the Sudanese people have the opportunity to help its transformation organization operating in South Sudan has a realize their potential. 

Journal of International Peace Operations 32 Volume 6, Number 5 — March-April, 2011

Columnists

Ambassador Herman J. Cohen (Ret.) Africa Ten Years into the Future

Will the cup runneth over or under?

The evolving face of Africa. Photos: Diplomatic Corps, Mkimemia/Stock

ow can we evaluate Africa’s progress trickling down a modicum of commodity wealth There is a division of opinion on this question. As over the past ten years? Is the cup half to their populations, although there is still a for me, I am of the opinion that the glass is still H full or half empty? considerable way to go in overcoming the half empty. infamous ―resource curse.‖ Looking at the financial newspapers lately, one Why am I coming down on the negative side? sees lots of optimism about Africa. The continent In the political arena, most African countries are a is a great place to make money. Overall growth is lot more open since the year 2000. Opposition First, outside of South Africa, I do not see much between 3.5 and 6 percent per annum. There is a parties exist and are quite lively. The press is often in the way of Africans producing value-added rising middle class with purchasing power. There free, animated and getting away with more and wealth. Agricultural exports continue to be way are more and more Africans with spare cash for more criticism of those in power. The explosion below what they were during colonial times. With shopping. Walmart, the largest American of portable phone ownership in sub-Saharan the current rise of food prices (due to the rising supermarket chain, has acquired the South African Africa has made it harder for governments to consumption of Asian and Latin American middle equivalent with stores in 12 African countries. engage in censorship or secrecy. Civil society classes), Africans are facing a major crisis of food This is significant. groups can communicate with their members and imports eating up all their purchasing power. can mobilize action with far greater expediency Africa should be able to feed itself and export China and India are expanding their economies at and impact than in the past. More and more surpluses, but unfortunately it faces the reverse. a rapid rate as they both quickly devour mineral elections are receiving the ―free and fair‖ seal of President Barack Obama’s high priority foreign and agricultural commodities. This is resulting in a approval from international and local observers. aid program called ―Feed the Future‖ is designed lot of money for a significant number of African Two-term mandates are resulting in more and to make Africa self-sufficient in, as well as a major countries that export oil, basic minerals and more heads of state being replaced. There are exporter of, food. There is a long way to go to get agricultural products. China, India, Australia and even a couple of countries where the incumbent there, but the President’s decision is right on Canada, among others, are investing heavily in heads of state accept the risk of losing an election. target. extractive industries throughout the continent. An increasing number of African governments are So, shall we rejoice? Is it time to pop a magnum Where are the factories that make garments and of champagne in honor of Africa crossing the low cost household items? Nowhere, because thresholds of sustainable economic growth and Chinese exports undercut local production. Ambassador Cohen is a former Assistant Secretary of State for Africa and is President of Cohen & Woods irreversible democratic transition? African governments need to protect infant International.  34

Journal of International Peace Operations 33 Volume 6, Number 5 — March-April, 2011

Columnists

 33 | Africa Ten Years into the Future | Ambassador Herman J. Cohen (Ret.) industries, instead of allowing them to be crushed grown in its capacity mediating and negotiating time to time, is Ghana. by China and India. Without the U.S. African force that aims to prevent and end conflicts. As of Growth and Opportunity Act program, African early 2011, only two major conflicts continue in For all this pessimism, good governance is on the export production would be even lower than it is Darfur and Somalia. rise. There are a number of authoritarian African now. governments that, although their heads of state Yet, democracy has yet to flourish in Africa. The will never lose an election, are practicing good What about poverty reduction? From the year current crisis in Côte d’Ivoire, in which the governance; there are countries where corruption 2000 to today, poverty levels have gone down previous —or should I say current — head of is diminishing and the flow of revenue is from 60 to 50 percent approximately. This is a state Laurent Gbagbo refuses to accept defeat in a transparent. It might be appropriate, therefore, to fine decrease, but levels are still far higher than U.N.-certified free and fair election, illustrates redesign our democracy/good governance they should be. This means that the rise of a new some basic issues standing in the way of true programs to give more weight (and resources) to middle class is not expanding to the majority of democracy. Where there is an absence of social governance, and less to democracy, a process that people in the rural areas, who in most countries capital and thus one major ethnic group cannot will advance at its own slow pace from the depths continue to live on less than two dollars a day. envisage living under the rule of another elections of the populations. have no meaning. Furthermore, the African In the political realm, African societies continue to Union is a club of heads of state who protect each What can we hope for and expect between now become more open and more transparent — there other’s interests. When does the Union become and the end of 2020? In my view, three entities has been a steady improvement over the past ten outraged? When a sitting head of state, a member will enter the take-off zone. These include (1) the years. However, democracy and good governance of the brotherhood, is overthrown in a coup. Ghana, Togo, Benin coastal trio, (2) the Southern have been improving at a snail’s pace. The oil However, when that same man rejects an African Customs Union (SACU: South Africa, producing countries continue to be constipated unfavorable election result, there is a big yawn Botswana, Lesotho, Swaziland Namibia, and with respect to using their large revenues for with the benefit of the doubt going to the adjunct member Mozambique) and the East infrastructure, health program, better education incumbent — a coup from the top, so to speak. African community (Kenya, Uganda, Tanzania, and the modernization of agriculture. Instead, This is what is happening in Côte d’Ivoire today. Rwanda and Burundi). As for the others: until the much of the revenues are being invested outside President Gbagbo has lost, but his constitutional four giants: Nigeria, the Democratic Republic of of Africa for the benefit of ruling elites. Let us council says that he really won. ―Who is the U.N. Congo, Angola and Sudan, can get their acts hope that the rising new mineral revenues will be to contradict a government’s own procedures?‖ together to capitalize on their potential, continued handled differently. argue some very important African heads of state. stagnation will be the rule.

Internal conflict has diminished, which should be This leads to what I will refer to as Ambassador So, the bottom line for Africa’s ten-year progress recognized as a major accomplishment. The end Cohen’s First Law of Democratic Transition in report is hold the champagne, but raise a vitamin of the 30-year Sudan civil war is a major Africa: If an incumbent head of state has decided water toast to those few countries that are gearing achievement for which the United States he does not want to lose an election, he will not up for the big push into the big time.  government deserves some credit. The African lose. So far, the only country where incumbents Union, with its Peace and Security Council, has accept the risk of losing, and actually lose from

 04| A Decade in Stability | Doug Brooks needs and international peacekeeping efforts. sprung up, indirectly working for the missions by civilian resources and leadership. ISOA will offering members everything from accounting to continue to play a central role as the industry’s When ISOA was launched ten years ago, the legal services and other services not employed in unified voice, and advocate for improved industry was just achieving ―self-recognition.‖ Its the field, but increasingly vital to a mature and international operations through enhanced scope of services was largely limited to logistics, sophisticated industry. utilization of ethical private services. construction, explosive ordnance disposal, aviation and security. Today, the scale and The industry’s challenges have changed as well, The U.N. mission in Sierra Leone was a long time diversity of the industry has vastly expanded to with problems ranging from the mission specific, ago and it was, albeit ugly, successful. The include communications, fleet management, such as apparently arbitrary Afghan tax laws, to international community must learn to improve capacity building, information technology, the strategic, such as the definition of inherently stability operations. There have been many language services, medical support, recruitment governmental functions and the International improvements and ISOA has been an active and human resources and all sorts of training and Code of Conduct for Private Security Providers. partner representing the private sector. Although security sector reform services. Many companies The budget crunch has forced a reassessment of many policy makers rail against future involve- and non-profits have evolved to provide ―state how stability operations will be carried out in the ment in such missions, in fact there are already building‖ services that help create long-term future and whether the central role that militaries more stability operations on the horizon, and it is solutions for weak and failed states. An identifi- play in peacekeeping missions is appropriate or incumbent on a humane world that we do them able class of ―supporting organizations‖ has cost effective compared to relying more on better than we did in the past. 

Journal of International Peace Operations 34 Volume 6, Number 5 — March-April, 2011

Columnists

Gary Sturgess The East India Company

A model of corporate governance

Governor General Hastings—a reformer for the ages. Photos: Stock

hree hundred and fifty years of British granted by the British Parliament effectively the world. However, we can condemn imperialism involvement in India have been summed administered most of modern India, Pakistan and and still ask whether a private corporation did a T up in six words: ―We traded; we Bangladesh. If we measure the scale of a reasonable job of building and managing a nation- conquered; we governed.‖ [1] government in terms of its tax revenues, Britain state. was only around three times the size of the And until 1858, this trading, conquering and confederation of states governed by the East India In the early years, it was atrocious. The Com- governing was done by a private corporation, the Company. If scale is determined by the numbers pany’s servants were merchants who found East India Company, which from 1772 exercised of those governed, then this privately-managed themselves endowed with the authority of virtual sovereignty over a substantial and government was ten times that of the British government officials. They lacked relevant consistently expanding part of the subcontinent. Crown. experience and, faced with a profound conflict between interest and duty, they abused public The East India Company was a government in all The shift from trading to governing was not authority for private gain. For example, Bengali but name. It maintained its own army and navy. It intentional, although it is not true, as one historian leaders presented Clive of India with a personal collected taxes and preserved customs barriers. It famously claimed, that the conquest of India fortune when he installed and kept them in minted coins and printed stamps. It codified the happened by accident.[2] Still, historians agree that positions of power. The Directors in London criminal law, and tried and punished offenders. the Company blundered into the government of found they could do little about it, in part because And in its final years, it started to lay down the Bengal in 1757 without quite realizing what it had there was nothing in their regulations that public infrastructure — roads, railways and done. For the most part, the Directors tried to addressed such a situation; and because he was irrigation systems — necessary to support a avoid war: it was bad for business. The Company half a world away by sea. It also did not help that modern economy. constrained British settlement and generally he returned home a national hero. avoided meddling in local religions, since that too From the 1830s, the Company had no business in would have been bad for business. Over the first two or three decades of Company India other than to govern, meaning that in the rule, its servants in India continued to accept (or later years a private corporation under a franchise No one today would disagree that the British extort) presents from native rulers. In the should have stuck to trading. Nation-building is Company’s name, they forced villagers to trade an ugly business at the best of times, and if it is to with them on favorable terms. They refused to The author is Executive Director of The Serco Institute. be done, then it should not be done by a handful pay customs duties to local rulers and they of foreigners from a small island halfway around  37

Journal of International Peace Operations 35 Volume 6, Number 5 — March-April, 2011

Photo: Olivier Chassot/U.N. Olivier Photo:

There is something new about IPOA. But there is nothing new about our members’ commitment to supporting stability operations, reconstruction and development.

The International Stability Operations Association serves as a valued and trusted association representing ethical and professional organizations partnering in stability, support and development efforts worldwide.

Ask your service provider: Are you a member of ISOA?

INTERNATIONAL STABILITY OPERATIONS ASSOCIATION

www.stability-operations.org

Connect with ISOA Facebook.com/StabilityOps | Twitter.com/StabilityOps | Flickr.com/StabilityOps | LinkedIn.com/in/StabilityOps

Columnists

 35 | The East India Company | Gary Sturgess extracted fees from the people for performing Sir John Shore — who was to follow Cornwallis and order which no state should be ashamed to public duties. as Governor-General — commented in 1789 that copy.‖ It was a pioneer in professional public there was more honesty, principle and humanity administration, with a college that schooled its The 19th century English historian Thomas in the government of India than in England, and young officers in political economy as well as local Macaulay wrote: no country in the world where public officials languages prior to their sailing from England. devoted more of their time to public business. ―….[At] first English power came among There would be ongoing problems with In the first few decades of the 19th century, India them unaccompanied by English morality… corruption, but the great plunder was over. became the testing ground for a new management During that interval the business of a servant philosophy developed by Jeremy Bentham, which of the Company was simply to wring out of The Indian historian B.B. Misra wrote in the represented the hottest new thinking about public the natives a hundred or two hundred 1950s ―Among the contributions of British rule in administration in the English-speaking world. thousand pounds as speedily as possible, that India the creation of the Indian Civil Service is Bentham’s leading disciples, the political he might return home before his constitu- one of the most remarkable. It constituted in fact philosopher James Mill and his son John, were tion had suffered from the heat, to marry a the spine of the Indian body politic, and to it the senior officials in the Company’s head office in peer’s daughter, to buy rotten boroughs in people generally looked for the protection of London. Cornwall, and to give balls in St James’s person and property, of life and liberty. Its form Square. […] [It was] an interval which has and character developed under the rule of the In some ways, the Company made for a better left on the fame of the East India Company East India Company.‖ [4] For more than half a government precisely because it was a private a stain, not wholly effaced by many years of century, from the 1790s until the end of Company corporation. The people of India could sue their just and humane government.‖ [3] rule in 1858, India was governed by a succession government in tort or breach of contract a century of remarkable public servants, men such as John or more before the people of England; and this Fortunately, the years of just and humane Munro, Charles Metcalfe and Henry Lawrence, was because the government of India was a government did come. They began as early as whose names deserve to be more widely known. corporation that could not claim Crown 1772, with the appointment of Warren Hastings immunity. As John Stuart Mill argued in 1858, the as Governor General, but took truly took off Because of its mercantile origins as well as a separation of policy and administration implicit in starting in 1786,when Earl Charles Cornwallis separation of powers forced on it by circum- this system of franchised government resulted in a initiated root and branch reform. By his stance, the East India Company was a govern- level of accountability and transparency that retirement in 1793, the Indian Civil Service had ment of record. The 18th century political would not have been possible if India was been born. philosopher and reformer Edmund Burke wrote administered directly by British government. that the Company’s records manifest ―a discipline The Indian Civil Service introduced merit appointment decades before the British Civil Service for precisely this reason: British politicians were happy to impose standards of professional- ism on the Company that they were not yet prepared to demand of government at home.

Such a system of government is, of course, unthinkable in the modern world. Yet the East India Company provides us with a fascinating insight into the evolution of a trading corporation into a professional public administrator that was able to overcome many of the conflicts between public duty and private interest. 

Endnotes

1. John William Kaye, The Administration of the East India Company, London, 1853, p.64. 2. John R. Seeley, The Expansion of England. Two Course of Lectures, London, 1883, p.207. 3. Thomas Macaulay, Warren Hastings, London, 1841,p.9. 4. B.B. Misra, The Central Administration of the East India Company, 1773-1834, Manchester University Press, 1959, p.378. Trial and error in Bombay. Photo: Stock

Journal of International Peace Operations 37 Volume 6, Number 5 — March-April, 2011

Professional Development

Journal of International Peace Operations 38 Volume 6, Number 5 — March-April, 2011

Professional Development

Journal of International Peace Operations 39 Volume 6, Number 5 — March-April, 2011

Professional Development

Journal of International Peace Operations 40 Volume 6, Number 5 — March-April, 2011

Professional Development

Journal of International Peace Operations 41 Volume 6, Number 5 — March-April, 2011

Professional Development

Journal of International Peace Operations 42 Volume 6, Number 5 — March-April, 2011

ISOA Membership Directory

The ISOA Membership

The International Stability Operations Association

The International Stability Operations Association is proud to have a multisectoral membership that represents the many various aspects of operations performed in conflict, post-conflict, disaster relief and reconstruction efforts. The Membership Directory attempts to provide a visualization of the different roles that our member companies fulfill in contingency operations by using the icons below to classify each company’s activities.

Armored Vehicles Construction Ground Transportation Legal, Accounting and Risk Management Logistics Compliance Services

Aviation Logistics Consulting Human Development Logistics, Freight Security and Maintenance Services and Capacity Building and Supply

Aviation: Rotary Demining and Information Medical Support Security Sector UXO Removal Technology Services Reform

Base Support Equipment Intelligence Services Product Suppliers Shelter and Logistics and Analysis and Manufacturers

Communications and Fleet Management, Language Services Recruitment and Training Tracking Leasing & Maintenance and Interpretation Human Resources

Abbreviations HQ Location of company headquarters W Website PC ISOA Point-of-Contact/Designated Delegate YM Number of years as Member of ISOA

AECOM Technology Corporation Air Charter Service PLC ARINC Engineering Services LLC HQ Los Angeles, California HQ Surrey, United Kingdom HQ Annapolis, Maryland W www.aecom.com W www.aircharter.co.uk W www.arinc.com PC Col. Rick Orth (Ret.) PC Tony Bauckham PC Bradley J. Little YM 3.0 years YM 1.0 years YM 0.7 years

Aggreko AMECO BAE Systems HQ Houston, Texas HQ Greenville, South Carolina HQ Rockville, Maryland W www.aggreko.com W www.ameco.com W www.baesystems.com PC Belinda Encarnacion PC Paul Camp PC Mary Robinson YM 0.7 years YM 5.7 years YM 0.3 years

Agility American Glass Products Baker Tilly HQ Safat, Kuwait HQ Ras Al Khaimah, U.A.E. HQ Vienna, Virginia W www.agilitylogistics.com W www.agpglass.com W www.bakertilly.com PC Thomas Shortley PC Tobias Beutgen PC Bill Keating YM 5.2 years YM 2.9 years YM 1.0 years

Journal of International Peace Operations 43 Volume 6, Number 5 — March-April, 2011

ISOA Membership Directory

BMMI EOD Technology, Inc. Interconex, Inc. HQ Sitra, Bahrain HQ Lenoir City, Tennessee HQ Sterling, Virginia W www.bmmigroup.com W www.eodt.com W www.interconex.com PC Carla Geday PC Bill Pearse PC Kieran Kayatin YM New Member YM 5.2 years YM 0.4 years

Burton Rands Associates Frank Crystal & Company International Armored Group HQ Washington, D.C. HQ Washington, D.C. HQ Ras Al Khaimah, U.A.E. W www.burtonrands.com W www.fcrystal.com W www.interarmored.com PC Nicola Lowther PC Jeffrey Wingate PC Sally Stefova YM 2.2 years YM 0.6 years YM 3.7 years

Crowell & Moring LLP FSI Worldwide International Relief & Development HQ Washington, D.C. HQ Dubai, U.A.E. HQ Arlington, Virginia W www.crowell.com W www.fsi-worldwide.com W www.ird.org PC David Hammond PC Nicholas Forster PC Jeffrey Grieco YM 2.8 years YM 2.8 years YM 0.3 years

CSS International GardaWorld J-3 Global Services HQ Grand Rapids, Michigan HQ Montreal, Canada HQ Tulsa, Oklahoma W www.cssih.com W www.garda-world.com W www.j-3globalservices.com PC Timothy Doyle PC Andrew Gibson PC Joe Woolslayer YM New Member YM 2.5 years YM 4.7 years

DLA Piper LLP Gibson, Dunn & Crutcher LLP MineWolf Systems HQ London, United Kingdom HQ Washington, D.C. HQ Pfaffikon, Switzerland W www.dlapiper.com W www.gibsondunn.com W www.minewolf.com PC Tara Lee PC Joseph D. West PC Philipp von Michaelis YM 2.2 years YM 0.8 years YM 2.6 years

DynCorp International HART Mission Essential Personnel HQ Falls Church, Virginia HQ Limassol, Cyprus HQ Columbus, Ohio W www.dyn-intl.com W www.hartsecurity.com W www.missionep.com PC John Gastright PC Claire Kee PC Chris Taylor YM 4.0 years YM 6.3 years YM 2.6 years

Ecolog International Holland & Hart LLP MPRI, an L-3 Division HQ Dubai, U.A.E. HQ Denver, Colorado HQ Alexandria, Virginia W www.ecolog-international.com W www.hollandhart.com W www.mpri.com PC Florin Hasani PC Trip Mackintosh PC Hank Allen YM 3.0 years YM 1.8 years YM 8.2 years

Journal of International Peace Operations 44 Volume 6, Number 5 — March-April, 2011

ISOA Membership Directory

New Century Pax Mondial Shield International Security HQ Arlington, Virginia HQ Arlington, Virginia HQ Seoul, South Korea W www.newcentcorp.com W www.paxmondial.com W www.shieldconsulting.co.kr PC Laura Engelbrecht PC Paul Wood PC Lucy Park YM 2.6 years YM 2.2 years YM 1.0 years

Olive Group Reed Inc. Shook, Hardy & Bacon LLP HQ Dubai, U.A.E. HQ Leesburg, Virginia HQ Washington, D.C. W www.olivegroup.com W www.reedinc.com W www.shb.com PC Gene Sticco PC Marius van der Riet PC David Douglass YM 5.2 years YM 5.0 years YM 2.0 years

OSPREA Logistics Relyant SOC Inc. HQ Cape Town, South Africa HQ Maryville, Tennessee HQ Chantilly, Virginia W www.osprea.com W www.gorelyant.com W www.soc-usa.com PC Salih Brandt PC Tiffany Midyett PC Shawn James YM 1.5 years YM 1.6 years YM 3.5 years

OSSI, Inc. Rutherfoord SOS International Ltd. HQ Miami, Florida HQ Alexandria, Virginia HQ Reston, Virginia W www.ossiinc.com W www.rutherfoord.com W www.sosiltd.com PC John Wallbridge PC Sara Payne PC Michael K. Seidl YM 5.3 years YM 3.0 years YM 3.7 years

Overseas Lease Group Safenet Telum Protection Corp HQ Fort Lauderdale, Florida HQ Dubai, U.A.E. HQ Southern Pines, N. Carolina W www.overseasleasegroup.com W www.safenet.net W www.telumcorp.com PC Tracy Badcock PC Mauritz le Roux PC Alfredo Quiros YM 3.0 years YM New Member YM 0.5 years

PAE Securiforce International America Triple Canopy HQ Arlington, VA HQ Fort Worth, Texas HQ Herndon, Virginia W www.paegroup.com W www.securiforce-ia.com W www.triplecanopy.com PC Tom Callahan PC Kenneth Nix PC Mark DeWitt YM 4.7 years YM 2.2 years YM 4.3 years

Paramount Logistics Securiguard Inc. Unity Resources Group HQ Johannesburg, South Africa HQ McLean, Virginia HQ Dubai, U.A.E. W www.paramountgroup.biz W www.securiguardinc.com W www.unityresourcesgroup.com PC Richard Merrison PC Peter McVety PC Jim LeBlanc YM 1.9 years YM 2.6 years YM 4.2 years

Journal of International Peace Operations 45 Volume 6, Number 5 — March-April, 2011

ISOA Membership Directory

URS Federal Services Whitney, Bradley & Brown Inc. WSI HQ Germantown, Maryland HQ Reston, Virginia HQ Arlington, Virginia W www.urscorp.com W www.wbbinc.com W www.armorgroup.com PC Robie Robinson PC Bob Wells PC Mike O’Connell YM 2.0 years YM 2.5 years YM 7.3 years

 22| Improving Humanitarian Response | Naveed Bandali military actors on the ground in such circum- a chicken and egg situation here, where donor over inappropriate work, while at the same time stances, and to work out what those relationships governments are not willing to put money in until involving them more and using their skills in ways will be in advance. There are some lessons, which the exact ways of spending it are clear, while that are genuinely constructive. were again visible during the Asian tsunami, which projects are slow to develop because those were not fully learned. What you had in Haiti responsible do not know if the money is going to Also, we need to recognize that humanitarian again was hundreds of NGOs turning up, some of be there. work has become much more dangerous than them not particularly well qualified, and more ever. Now we have situations in Afghanistan, likely to be part of the problem than the solution. These are issues which are not unique to Haiti, Pakistan and Somalia, where humanitarians are I am not talking about the big, international but are particularly difficult in the complicated being targeted, and end up being assassinated, organizations, but of many smaller ones with no context of Haiti. We all knew it was going to take kidnapped or assaulted in other ways. People are track record or capacity. ten years at least to get Haiti better than it was ready to put themselves in harm’s way, but the before, so we are going to have to be patient in risks are increasing and we need to find better I also think there are questions about ensuring doing that. Unfortunately, those in the camps are ways of tackling this. better stockpiles of essential goods that can be going to have to be particularly patient. accessible more quickly, for example, ready-to-eat JIPO: As a result of the tepid international response to meals and tents and tarps. Another issue is the JIPO: From Afghanistan to Sudan, civilian contractors some of the larger humanitarian crisis such as the Rwanda relative unfamiliarity of the international serve parallel to the armed forces, diplomats and aid genocide, former U.N. Secretary-General Kofi Annan and community with disasters in urban settings, like workers involved with stability operations around the globe. others have contemplated a larger role for the private sector Port-au-Prince. Overall there are a lot of lessons How can the private sector better support U.N. missions “in providing the United Nations with the rapid reaction which the international community is attempting and operations? capacity it needs.” What is the potential that an enhanced to learn to make sure that we are better prepared role for the private sector could add to the U.N.’s response and more effective next time around. Holmes: I think that there are two points here. capacity? One is that we do want to involve the private JIPO: A year after the devastating earthquake struck sector more in the humanitarian response and Holmes: There are no doubt some possibilities Haiti, is it fair to say that the reconstruction and recovery reconstruction efforts because we recognize that there. However I do not think the private sector efforts have not been promising? What accounts for the slow they have a lot to bring to the party, not only in can substitute in key areas for states or the progress? Is this typical or perhaps indicative of overly terms of resources, but also expertise, skills, international community; it has to be subordinate ambitious thinking for a twelve-month period? speed, and so on. So we need to find ways to to them. I think there is a related issue, which is engage them more and find ways of having that there is always a wish to have more standing Holmes: I think it is a bit of both those things. partnerships that are effective well in advance of capacity available to the U.N. to intervene in Clearly it is very disappointing that a year after the disasters. situations. We want to make sure the alarm bells earthquake there are so many people still in are being rung much earlier. There remains the makeshift camps, in which conditions are often At the same time, I think there is a degree of question, though, if you do ring the alarm bells very poor; that the rubble clearance is so slow; nervousness about involving private sector and decide to intervene, who is actually going to and that reconstruction is also slow. There are organizations in humanitarian response because do it? It has to be the armies of some states that complex reasons behind this. We do not have a humanitarian response has to be based on are ready to put their own soldiers at risk. very effective government to deal with, but at the fundamental principles like impartiality, independ- Particularly in the contexts of what happened in same time we need the local government to be in ence and neutrality. And however good an Iraq and what is happening in Afghanistan, and the lead. There are some basic, unresolved organization is, if it is doing it for a profit motive, the discredit those situations have brought on the questions about land rights which have had a it is not necessarily going to be most concerned idea of outside military intervention, it may be particularly slowing effect on reconstruction. with these principles. And particularly private very difficult to find those forces. People have sector organizations that have been contracted by suggested some kind of standing forces at the I think expectations are also probably always a belligerent party, for example some of the disposal of the U.N. for intervention when exaggerated. The amount of rubble in Port-au- American contractors in Iraq, raise some decided by the international community. But the Prince was mind bogglingly large and very difficult fundamental questions about the nature of the reality is that the high financial and political cost to deal with. The money has been slow to flow for humanitarian work they are doing. We need to means that this is probably not going to occur in reconstruction from the outside. We have a bit of make sure that the private sector is not taking the foreseeable future. 

Journal of International Peace Operations 46 Volume 6, Number 5 — March-April, 2011

Photo: Myriam Asmani/U.N. Myriam Photo:

There is something new about IPOA. But there is nothing new about our members’ commitment to supporting stability operations, reconstruction and development.

The International Stability Operations Association serves as a valued and trusted association representing ethical and professional organizations partnering in stability, support and development efforts worldwide.

Ask your service provider: Are you a member of ISOA?

INTERNATIONAL STABILITY OPERATIONS ASSOCIATION

www.stability-operations.org

Connect with ISOA Facebook.com/StabilityOps | Twitter.com/StabilityOps | Flickr.com/StabilityOps | LinkedIn.com/in/StabilityOps