Crisis in Civil-Military Relations," in Humanist, Lanuary, February 1998,6- 1 1

Müitary Interaction witb Non-Govcmmentil Orginiutions (NGO)and otbcr Humaaiitariin Agcncies (HA) during Huminitariia Assistance Opcritions: Ikfining the Civilhn-Milm Rtiationsbip Lieutenant-Colonel Jim Simrns Subrnitted in partial ftlfillment of the requirements for the degree of Master of Arts Dalhousie University Halifax, Nova Scotia September, 1999 O Copyright by James B. Simrns, 1999 National Library Bibliothèque nationale 1*1 of Canada du Canada Acquisitions and Acquisitions et Bibliographie Services services bibliographiques 395 Wellington Street 395, rue Wellington OnawaON KlAM OrtawaON K1A W Canada CaMde The author has granted a non- L'auteur a accordé une licence non exclusive licence aiiowing the exclusive permettant à la National Library of Canada to Bibliothèque nationale du Canada de reproduce, loan, distribute or sell reproduire, prêter, distribuer ou copies of this thesis in microform, vendre des copies de cette thèse sous paper or electronic formats. la forme de microfiche/nIm, de reproduction sur papier ou sur format électronique. The author retains ownership of the L'auteur conserve la propriété du copyright in this thesis. Neither the droit d'auteur qui protège cette thèse. thesis nor substantial extracts £kom it Ni la thèse ni des extraits substantiels may be printed or otherwise de celle-ci ne doivent être imprimés reproduced without the author's ou autrement reproduits sans son permission. autorisation. Dedicated to: Mary-JO,Amy, Benjamin and Rebecca and Irene and Harvey Simms Strength from Family List of Tables Page vi Abstract vii ..* Abbreviations Used Vllt Acknowledgments Chapter 1 What are Hurnanitarian Assistance Operations? Chapter 2 Defining the Factors: An Analytical Framework Chapter 3 Focushg on the Interaction Chapter 4 Analysis and Findings Chapter 5 Conclusion Appendix 1 Levels of Operational Planning Appendix 2 Military Planning Process Appendix 3 Intemet Sites Applicable to Humanitarian Assistance Coordination Appendix 4 Example of a Humanitarian NGO (Catholic Relief Service) Appendix 5 Research Questionnaire Reference List Table 1 : Coordination with Non-Military Organizations Page 3 Table 2: Links To Emergency Sites 8 Table 3 : The Deadly Sins of Humanitarian Assistance 15 Table 4: The Big Eight 25 Table 5: Military Involvement in 30 Humanitarian Emergencies Table 6: Cornparison of Cultures Table 7: Lessons Leaned Table 8: Mission Anaiysis - Croatia Table 9: Leamhg tiom Past Experiences Table 10: Assessrnent of the United Nations Rwanda Emergency Office Table 1 1 : Conditions for Successfiil Humanitarian Assistance Operation The scope of this thesis includes an examination of the interaction of militaxy forces and non-military forces in complex emergencies. While the goal of the thesis is to establish a balanced look at the issues, including fiom the non-govemental organi ation perspective, the overall study is meant to define the relationships in an effort to assist military actors in establishing normative relationships. Specific examples and lessons learned are focused on the interaction of NGOs with the military and on the mission areas of Rwanda (1994) and the former Yugodavia. After examining what are complex emergencies and who are the humanitarian assistance actors, the dissertation bases its analysis of case studies on four core factors; capabiiities, organi ational culture, planning processes and ethos. Throughout the work, observations and lessons learned are forwarded as a means to identi&ing the probtems in current relationships, to identiQ areas where cooperation can be enhanced and to suggest how that enhancement can be accomplished Among the findings include; the need to improve leaming fiom past experiences, the difficulty in sustaining workable cooperative relationships when there are military commitments in complex emergencies without the provision of the adequate military resources, the requirement for highly professional military forces to interact with NGOs and other humanitarian actors, the requirement for increased flexibility and a reduction in national restrictions in order for military forces to be more capable of dealing with a very flexible NGO cornmunity and, finally, the need for better coordination between the peacekeeping partners based on a specific concept for coordination (such as the United Nations Emergency Ofice in Rwanda). In the conclusion, the author posits that a civilian-military relations modet specifically designed for humanitarian assistance operations is required if past coordination difficulties are to be overcome and if there is going to be a more effective response to future humanitarian assistance requirements. It is Merrecommended that this mode1 should develop around three central themes; professional education, mission planning and structure. A final recommendation is that it is at the tactical and gras-roots level where the most success in coordination has been effected in the past and, therefore, this should be the focus of initial efforts of coordination enhancement. vii Abbreviations Used AOR Area of Operations CANBAT Canadian Battalion CF Canadian Forces CIMIC Civil-Military Cooperation CONGO Conference of Non-Governrnental Organi ations in Consultative Status with the UN Economic and Socid Council COP Contingency Operations Plan CSCE Conference on Security and Cooperation in Europe DART Disaster Assistance Response Team EC European Community ECHO European Community Humanitarian Office EU European Union FA0 Food and Agriculture Organi ation of the United Nations GAO Generai Accounting Office HA Humanitarian Agencies iASC Inter-Agency Standing Committee ICRC International Committee of the Red Cross [CVA International Council of Voluntary Agencies lFOR Implementation Force IGO International Govemmental Organi ation JFC Joint Force Commander KLA Kosovo Liberation Army MSF Medicins sans Frontiers NATO North Atlantic Treaty Organi ation NGO Non-Govenimental Organi ations ODA Overseas Development Agency PVO Private Volunteer Organi ations (U.S. Term) SC Security Council SCR Security Council Resolutions SFOR Sustainment Force UN United Nations UNAMIR United Nations Assistance Mission for Rwanda UNCIVPOL United Nations Civilian Police UNDHA United Nations Department of Humanitarian Affain UNDP United Nations Development Programme UNEF United Nations Emergency Fund UNESCO United Nations Education, Scientific and Cultural Organi ation UNHCR United Nations High Commissioner for Refugees UNICEF United Nations Children s Fund UNIKOM United Nations Iraq-Kuwait Observation Mission UNMIH United Nations Mission in Haiti viii UNPROFOR United Nations Protection Force (in the former Yugoslavia) UNREO United Nations Rwanda Emergency Office USAID United States Agency for International Development WEU Western European Union WFP World Food Programme WHO World Health Organi ation 1 would like to take the opportunity to acknowledge and thank various individuals for contributing to this thesis and, additionally, to my academic and professional development. In the first instance, 1 would Iike to acknowledge the support and assistance of Lieutenant-General Ray Crabbe, former Depuîy Chief of Defence Staff for his support and encouragement of my academic endeavours. It was a privilege to work for such a fine oficer. 1 thank the Canadian Forces for authori ing my application for post-graduate study and the Department of National Defence for awarding me a strategic studies scholarship. In retum, 1 have attempted at every opportunity to provide my fellow students a snapshot of the military profession and our unique challenges and capabilities. I would also Iike to acknowledge Dr. Joel J. Sokolsky for his support and assistance in both the RMC war studies programme and in my efforts at Dalhousie University. Additionally 1 would like to thank the Association of Universities and Colleges of Canada and, in particular, Ms. Alison Craig. During my two years of study at Dalhousie University 1 was fortunate to have exposure to outstanding professors including Dr. Jennifer Smith and Dr. Peter Aucoin. 1 wouid like to particuiady acknowiedge Dr. Denis Stairs - one has no choice but to learn in his esteemed presence. For his patience, assistance and advice, 1 note, and thank, Dr. Dan Middlerniss, my thesis supervisor and professor for three different courses. 1 would also iike to thank Peter Haydon of the Centre for Foreign Policy Studies for agreeing to be a reader and for his valuable comments. In the end, this thesis was made better by those mentioned and others unmentioned. Any errors, omissions or perceived shortcomings are mine alone. Chanter 1 - What are Humanitarian Assistance Ooerations? Introduction Cornplex emergencies and disasters continue to be a real concem.' Notwithstanding the optimism displayed by international statesmen and leaders in the early 1990s. the fact remains that the decade has commenced and is about to end with immense humanitarian s~ffering.~In fact, Canadian rnilitary forces are more apt to be employed in hwmitarian assistance operations than in war fighting. Notwithstanding this, Joel S . i. ' ky, in a recent paper titled Dangerous Places in a Safe World: The Canadian Forces and Armed Responses to Security Risks, argues that, despite the present security situation affording Canada a world safer than it has known since perhaps the first world war, the 1994 Defence White Paper demands combat capable forces that have the capability to engage in high-intensity combat action oversees.' In essence, to be able to be employed in dangerous places

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