A Civil-Military Response Operations

A New Way of Working Together: A Civil-Military Interaction Model for Future Australian Disaster Response Operations Emily M. Chapman A thesis in fulfilment of the requirements for the degree of Doctor of Philosophy UNSW AUSTRALIA School of Humanities and Social Sciences UNSW Canberra January 2020 Thesis/Dissertation Sheet Australia's UNSW Global SYDNEY University Surname/Family Name Chapman Given Name/s Emily Margaret Abbreviation for degree as give in the University calendar PhD Faculty UNSW Canberra School Humanities and Social Science A New Way of Working Together: A Civil-Military Interaction Model for Future Thesis Title Australian Disaster Response Operations Abstract 350 words maximum: To support populations affected by natural disaster, Secretary General of the International Federation of Red Cross and Red Crescent Societies (IFRC), Elhadj As Sy, stated in 2016 that actors need to move beyond institutional loyalty and commit to working together. This strategic thinking lays the foundation for this study, which examines interaction between civilian and military actors during disaster response with the aim to determine if there is a new or better way for actors to come together in times of need. Innovation in this field is critical heading into the future because relationships between civilian and military actors have historically formed through necessity rather than an institutionalised approach. Using an inductive methodology, this study draws on Australia's responses to natural disasters in the Philippines, Vanuatu and Fiji to examine how the Australian Defence Force (ADF) interacts with a broad range of civilian actors during disaster preparedness and response, two phases within a disaster management cycle. Following these case studies, a consolidated list of factors that influence civil-military interaction are drawn from a cross-case pattern search, coordination theory and broader literature review. This knowledge is used to build a model that addresses the core purpose of this study, which is to propose a civit-military interaction process model that supports the conduct of an Australian response to international natural disasters. The model developed specifies how and when Australian civilian and military actors should interact within a whole-of- government approach and with external civilian actors, including affected nation authorities and humanitarian organisations. It does so by proposing agile and adaptive practices, behaviours, and structures built through strategic commitment to disaster management, mutual understanding, learning and adaptation, training and education, tailored capability, and adherence to aligned governance structures. The endpoint of the model is unity to meet the needs of an affected nation through civilian and military efforts being part of a purposeful whole. 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Signed Date Table of Contents Acknowledgements vii Author’s Note ix Abbreviations x List of Figures xii List of Tables xiii Chapter 1. Working Together during Disaster Management 1.1 Introduction 1 1.2 Disaster Management 3 1.2.1 Mitigation 5 1.2.2 Preparedness and Planning 6 1.2.3 Response 6 1.2.4 Recovery 7 1.3 Working Together 8 1.3.1 Whole of Government 9 1.3.2 External Actors 13 1.4 Types of Civil-Military Interaction 19 1.4.1 Coherence 19 1.4.2 Cooperation 20 1.4.3 Coordination 20 1.4.4 Coexistence 21 1.4.5 Curtail 21 1.4.6 United Nations Humanitarian Civil-Military Coordination 22 1.5 Levels of Civil-Military Interaction 23 1.5.1 Strategic 24 1.5.2 Operational 24 1.5.3 Tactical 24 1.6 Civil-Military Interaction Disaster Management 25 1.6.1 International Structures 25 1.6.2 Regional Structures 34 1.6.3 Australian Structures 38 1.7 Research Purpose 39 i 1.7.1 Research Objective 40 1.7.2 Research Questions 41 1.8 Summary 42 Chapter 2. Research Strategy 2.1 Introduction 43 2.2 Worldview 44 2.3 Military involvement in Disaster Management 48 2.4 Methodological Approach 54 2.5 Building Theory Using Case Studies 56 2.6 Data Collection 64 2.7 Data Analysis 71 2.8 Model Development 74 2.9 Research Limitations 77 2.10 Summary Chapter 3. Typhoon Haiyan (Yolanda) – Philippines – Operation Philippines Assist 3.1 National Context 81 3.2 Super Typhoon Haiyan (Yolanda) 84 3.3 Response to Typhoon Haiyan (Yolanda) 85 3.3.1 National Response 86 3.3.2 National Disaster Response Plan 88 3.3.3 National Disaster Risk Reduction and Management Council 89 3.3.4 Multinational Coordination Centres 89 3.4 Australian Whole-of-Government Response 91 3.4.1 ADF Response – Operation Philippines Assist 94 3.4.2 Preparation 95 3.4.3 Capability 97 3.4.3.1 Immediate Response Teams 97 3.4.3.2 Composition 100 3.4.3.3 CIMIC and Liaison Officer Network 101 3.4.3.4 Gender Participation 103 3.4.3.5 Co-location and Teaming of Civilian and Military Actors 103 3.4.4 Leadership 104 ii 3.4.4.1 Command and Control 106 3.4.4.2 Delegation and Decision Making 107 3.4.4.3 Relationship Building 108 3.4.4.4 Key Leadership Engagement 109 3.4.5 Coordination Structures 109 3.4.5.1 Operating Procedures 111 3.4.5.2 Requests for Military Assistance 111 3.4.5.3 Accreditation 112 3.4.6 Monitoring and Evaluation 113 3.4.7 Organisational Learning 116 3.4.7.1 Lessons Identified 117 3.5 Summary 119 Chapter 4.

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