COUNCIL OF THE EUROPEAN UNION Brussels, 6 May 2010 9472/10 COPS 217 COSDP 389 CIVCOM 261 COADM 1 NOTE From : To : Subject : Politico-Military Group Political and Security Committee Draft Comprehensive Annual Report on ESDP and ESDP-related Training (CART) 2010 As a result of the meeting of the Politico-Military Group with civilian and military training experts on 3 May 2010, delegations will find attached the draft Comprehensive Annual Report on ESDP and ESDP-related Training (CART) 2010. Subject to PSC agreement, the report will be forwarded to the Council through COREPER with a view to its approval. 9472/10 RK/ez 1
CART 2010 Comprehensive Annual Report on ESDP and ESDP-related Training References: Draft Comprehensive Annual Report on ESDP and ESDP-related Training, 2009 (doc. 9280/09); Elaboration of the CART 2010 (doc. 7723/10); General Annual Report on ESDC Activities 2010 (doc. 2353/10). I. General 1. The Comprehensive Annual Report on ESDP 1 and ESDP-related Training (CART) 2010 builds on contributions from the EU-level training actors (ESDC and CEPOL), GSC, CSDP Missions, European Commission, EDA and Member States' contributions (19 Member States). 2. The CART 2010 links up with the findings and conclusions of the CART 2009 and discussions in different Council bodies on ESDP-relevant training aspects. II. State of play 3. In general, the situation concerning the ESDP and ESDP-related training has seen improvement in some areas, while its main features remain very similar to those described in the CART 2008 and CART 2009. Main points are summarized below. Training demand and supply 4. ESDP and ESDP-related training is conducted by a variety of training actors, civilian and/or military both at EU and national level. The number of courses has increased and the quality further improved. Main findings are as follows: 1 As CART 2010 covers the entire calendar year 2009 and thus also the Lisbon Treaty's coming into force on 1 December 2009, the term 'ESDP' is used throughout the document mainly in a retrospective sense, while the term 'CSDP' is used mostly in a forward-looking sense and for post-lisbon Treaty references. 9472/10 RK/ez 2
- the ESDC increased the variety and the number of its activities (eight types of courses in the current academic year); - CEPOL increased its efforts to prepare the senior personnel of the European police forces to engage in civilian crisis management; - the relevant EU institutions and bodies (Council Secretariat, European Commission), while using also the training courses of the ESDC, further developed also their specific internal training programmes to prepare their staff to work in the field of CFSP/ESDP and to engage actively in planning, conduct and support of ESDP missions and operations; - many Member States, while relying for the strategic level training in particular on the ESDC, continued to conduct at national level numerous training activities related to ESDP and opened some of these activities also to participation of other nationals. Some of these courses have not been listed in the annual EU Training Programme (via Schoolmaster application) despite being open for such a wide participation. 5. Due to steadily growing requirements and interest, the demand still exceeds the training capacities made available both at the EU and at national level. 6. In this context, the annual EU Training Programme is supposed to bring together the relevant training activities, to make them public and open to participation of personnel of EU Member States and EU institutions, and as appropriate also to third states and international organisations. To improve the programme, the Council Secretariat, last year as part of the Goalkeeper environment, launched the Schoolmaster application to develop and administer the annual training programme via the internet (https://esdp.consilium.europa.eu). So far, 16 Member States followed the invitation to establish their Points of Contact for the Schoolmaster application and were provided with user names and passwords to access the application. This enabled Member States concerned to feed Schoolmaster with their courses which they make open for participation of other nationals. Schoolmaster facilitates the consultation of the annual EU Training Programme in the field of CSDP, i.a. by offering users the possibility to receive alerts on new courses included in the Schoolmaster. Member States who have not yet registered to use the Schoolmaster application and to receive alerts on new courses are encouraged to contact goalkeeper.schoolmaster@consilium.europa.eu without delay and use the application on systematic and pro-active basis. 9472/10 RK/ez 3
7. It is recalled that since January 2009, Internet-based Distance Learning (IDL) material developed by the ESDC has been made available to support ESDP training activities listed in the EU Training Programme. 8. It is further recalled that basic principles remain valid, namely that Member States have the primary responsibility to train personnel seconded to CSDP missions and operations - generally through national, bilateral or multilateral arrangements. Activities of the European Security and Defence College (ESDC) 9. According to the Council Joint Action 1, the ESDC Steering Committee adopted the General Annual Report on ESDC Activities 2010 and forwarded it to the relevant Council bodies (circulated as a document SN 2353/2010). 10. The report focuses on the training activities organised and conducted under the aegis of the ESDC during the last year which includes the following: (1) the conduct of regular courses: - the annual CSDP High Level Course (currently with 5 one-week modules), - three CSDP Orientation Courses, - the CSDP Course for Press and Public Information (PPI) Staff, - a course on Security Sector Reform (SSR) and - two CSDP Mission Planning Procedures Courses. (2) the conduct of new pilot training activities: - a Pilot Course on Civil-Military Co-ordination in CSDP Operations, - a Pilot Course on EU Military and Civilian Capability Development, - a Course on International Law for Military Legal Advisors. 1 Council Joint Action establishing the European Security and Defence College 2008/550/CFSP of 23 June 2008, Article 6, 5.f 9472/10 RK/ez 4
11. The report also covers in detail specific activities conducted under the umbrella of the ESDC including: - the running and further development of the ESDC Internet-based Distance Learning (IDL) System, - the progress reached in the implementation of the "European Initiative for the Exchange of young officers inspired by Erasmus", - the conduct of a Networking Conference bringing together the relevant civilian and military training actors involved in CSDP-related training, - a "Symposium on Effectiveness of CSDP Operations - Gender Issues", - a special meeting of the Executive Academic Board focusing on Curriculum Review and Revision. 12. In its report, the ESDC Steering Committee agreed on the following conclusions and recommendations: Conclusions (1) During 2009, the ESDC has further developed its position as a key training actor providing training in the field of the CSDP at the strategic level. It diversified the courses it offers to ensure that appropriate training will be provided to personnel working in the field of CSDP from working/desk level up to high-ranking staff/decision makers and experts working in specialised CSDP-related areas. This was achieved by bringing a variety of specialised courses that were well developed by Member States' training institutes under the umbrellas of the ESDC. These courses were in line with the identified requirements at EU level and with the ESDC's training concept. (2) As regards the CSDP High Level Course, the future organisation is currently being further developed. The implementation for a course with 4 modules instead of the current 5 will be a fact in the academic year 2010-2011, while at the same time more flexibility is given to the module leaders to tailor the duration of the modules to meet the training objectives. 9472/10 RK/ez 5
(3) The reduced number of offers for Orientation Courses and other 'standard courses' might indicate that the limit in voluntary contributions from Member States has been reached. This risk was only partially mitigated by very welcome offers from Member States that have organised their first ESDC activity in this year. On a couple of occasions the ESDC Secretariat acted as training actor with little support from a Member State. In these cases, the issue was resolved by seeking alternative hosting partners like CEPOL and the Council Secretariat's Press Office. (4) This is in contrast to the ever increasing demand for participation in ESDC 'standard' courses like the Orientation Course and High Level Course, not only from Member States, but also from Candidate Countries, International Organisations and Third States. In this context, the College is more and more used to offer these partners first concrete and practical steps for co-operation. (5) At the same time, the number of participants who at the last moment cancel their participation, is increasing. The use of the preparatory IDL modules makes it impossible for these seats to be filled in by alternate candidates at the last minute, although the College Secretariat has done the utmost in several cases to get last minute candidates ready for the residential part of the course. Special thanks goes to the extremely responsive and flexible personnel of the Belgian Royal Military Academy who have made this possible! (6) A positive side effect of the increasing number of courses and of the ESDC's involvement in the European initiative for the exchange of young officers is an increased visibility for the College. Further work needs to undertaken to make the College more visible over the internet. The page currently hosted by the Council Secretariat is not very well suited for this purpose, due to the relatively long response time for updating. An alternate solution has been developed with the co-operation of the Belgian Royal Military Academy. The possibility of giving this web portal an EU domain name remains to be explored. 9472/10 RK/ez 6
(7) The implementation of the European initiative for the exchange of young officers has taken a good start. The creation of the framework for the initiative and the definition of a military credit system, complementing the existing ECTS system, the comparative analysis of competences and an effective communication strategy will be cornerstones for future exchanges between Member States. More constant and wider participation to the IG 1 activities from the national experts is recommended to better guarantee concrete developments of exchange programmes. (8) The ESDC's IDL system, including the knowledge base, is rapidly expanding. The highly positive feedback by the course participants triggers the interest of other players in this field, who seek further cooperation with the ESDC in the field of e-learning. (9) The cooperation with other partners has deepened in 2009. The GCSP 2, originally a partner in the IDL project, now plans more practical contributions to the residential modules of the HLC. Cooperation with the NDC 3 has lead to a session of the HLC together with the senior course of the NDC during a visit of the HLC to the NDC. Cooperation with CEPOL lead to the successful joint organisation of a course on mission planning procedures. Other internationally renowned institutes like IIHL 4 and DCAF 5 are knocking on the door. Clear guidelines have been established and approved by the Steering Committee on the cooperation with external partners, creating an essential condition for accelerating the improvement of quality and effectiveness of training delivered by the College. (10)The Council recommendations of December 2008 on the future perspectives of the ESDC have not been implemented in new Council Decision in the year 2009. Although experience and standardisation can increase effectiveness and efficiency to a certain extent, the increasing number and differentiation in tasks could in the long term lead to a less than optimal quality of the service provided by the Secretariat. 1 Implementation Group 2 Geneva Centre for Security Policy 3 NATO Defense College 4 International Institute for Humanitarian Law 5 Geneva Centre for Democratic Control of Armed Forces 9472/10 RK/ez 7
Recommendations (1) Member States and their institutes should feel encouraged to continue to supply the ESDC training activities in line with the ESDC training concept. In order to better meet the identified training requirements, a more systematic approach should be applied for the establishment of each annual academic programme. In this context, among others, a more regular and active consultation of the ESDC Secretariat with the Member States and their national institutions might help to trigger sufficient offers for the conduct of relevant ESDC courses. (2) The new setup of the High Level Course as a four module course needs to be carefully evaluated. Based on the lessons learned from the 2010-2011 course, the EAB and the Steering Committee should consider whether the changes made were the appropriate ones. This consideration should also closely look at the influence of the increased use of the IDL platform on the residential phases. (3) Whenever appropriate, and in accordance with the provisions of the Joint Action 2008/550/CFSP establishing a European Security and Defence College, consideration should be given to open ESDC courses to participants from third parties, in order to get them better acquainted with the EU in general and CSDP in particular in order to allow these entities to interact more easily with the EU particularly during missions and operations. (4) The ESDC IDL capability should continue to be developed with high priority in 2010, both as regards content and as regards the platform. In particular, this is an essential condition to guarantee the implementation of the mentioned improvements of the HLC curriculum (previous point 2), as well as the effectiveness of all residential courses. (5) The ESDC Secretariat in close co-operation with the relevant course directors and module leaders should continue to conduct a systematic and objective evaluation process. This is in particular the case for pilot activities, including those activities that were already conducted as national courses. 9472/10 RK/ez 8
(6) Regular ESDC Alumni Seminars should be envisaged to allow for and improve networking among the participants of high level courses. (7) The ESDC should continue and enhance the fruitful cooperation with other training actors. (8) As underlined by the Council Conclusions on CSDP of 23 November 2009 (Doc 16500/09), it is high time that the recommendations of December 2008 on the future are implemented correctly. Military training 13. Before CME 09, an Operational Planning Process (OPP) refresher seminar session for EUMS double hatted personnel took place. 14. In October 2009, the EUMS organized an ESDP Foundation Training (EFT) for 59 people (OHQ Key Nucleus personnel and MS potential augmentees) from 16 MS. Assessing Brussels as the most appropriate place for this category of training, in 2010, the EUMS plans to organize two CSDP Foundation Trainings (May and October). 15. In January 2010, the EUMS reassessed the utility of the Sharing Training Facilities (STF) Catalogue, including the possible incorporation of Third States training facilities. As a result of the evaluation, the STF Catalogue is considered a consultation tool which seems to meet the MS needs. This tool remains under development. Training in the field of civilian crisis management 16. In December 2009 the PSC agreed a document on 'Enhancing civilian crisis management predeployment training' 1, aiming for a system based on the following principles: 1 doc.17506/09 'Enhancing civilian crisis management pre-deployment training', agreed by the PSC on 15 December 2009 9472/10 RK/ez 9
- ensuring that every Member State can dispose of civilian personnel to be deployed to civilian ESDP missions that have received a training based on curricula with minimum-defined standards; - enhancing the link between operational needs of civilian ESDP missions and training activities; - co-ordinating the pre-deployment training delivered by the Member States; - improving the overall link between training, recruitment and deployment. 17. Ensure coherence and avoid duplication between pre-deployment training carried out by Member States and in-mission training carried out by CSDP Missions and Operations, including through clearer guidelines on their respective content as well as by Member States sharing information concerning the delivered pre-deployment training with relevant EU bodies in a timely and systematic manner. 18. Areas that need special attention in training efforts include, inter alia: - CSDP Mission administrative, financial and procurement procedures; - MMA tasks (especially through methodology and pedagogy for MMA); - programmatic approach (as applied in CSDP Missions); - CSDP concepts; - Responsibility to Protect (R2P); - mainstreaming human rights and gender aspects; Training needs of contracted personnel recruited into CSDP Missions should be also addressed in an appropriate manner. The areas above may also apply to the military training domain as appropriate. 19. In order to better prepare personnel deployed to civilian CSDP Missions more intensive use of electronic resources should be considered, including inter alia: wider access to the ESDC IDL System materials, utilization of recently developed CSDP Handbook and other relevant materials, including those developed within CSDP Missions. 9472/10 RK/ez 10
20. Training activities should utilize, as appropriate, lessons identified/best practices from both civilian CSDP Missions, exercises (such as 'EU Police Force Training', EUPFT), relevant international organizations and Member States. Feedback on operational reality of CSDP Missions could be further enhanced through identification of potential trainers among the personnel of CSDP Missions and their subsequent use in pre-deployment training efforts once they finish their tour of duty. 21. During 2009 the European Commission completed the implementation of the final phase of the 'EC Project on training for civilian aspects of crisis management', a project which since 2001 has been complementing Member States' training activities. Working with training bodies in the Member States, the project has helped to facilitate the further development and sharing of professional training expertise as well as the elaboration of standardised training curricula. In late 2009 the Commission undertook a review of the assistance implemented to date and identified priorities for possible future support to training for civilian aspects of crisis management to be considered in the framework of the 2010 Annual Action Programme for the 'Peacebuilding Partnership' of the Instrument for Stability (IfS). 1 22. Furthermore, the European Commission continued in 2009 its IfS support for the 'EU Police Force Training' (EUPFT) project for the training of police experts for participation in civilian missions. The EUPFT implementing partner for 2009 was the Italian Carabinieri. Continued support for training of police experts is envisaged under the IfS 2010 Annual Action Programme. Third states and international organisations 23. Third States are regularly invited to participate in EU-led missions and operations. The EU needs to continue to enhance interaction with other actors in the field and to co-operate with relevant international organisations, in particular the UN, NATO, AU, OSCE, Council of Europe, etc. To this end, participation of Third States and officials from international organisations in specific training activities in the field of CSDP is needed, as well as other forms of training cooperation with international organisations, namely in the area of harmonisation of curricula and certification systems. 1 See 'Review of EC support for training related to Civilian Crisis Management', dated 30 November 2009. 9472/10 RK/ez 11
24. In line with this, Third States and international organisations participated regularly in particular in the CSDP orientation courses of the ESDC as well as in several CSDP-relevant training activities organised by Member States. The interest of the UN in particular is growing also as regards further exploration of curricula harmonisation and certification. Training initiatives under the umbrella of the European Defence Agency 25. In line with the tasking of participating Member States to identify and find a solution in filling critical recognised training gaps as part of its work on capability development, the European Defence Agency has further developed a number of training activities. 26. The first of those focused on the exploitation of Open Source Intelligence (OSINT). The EDA in 2009 run a total of 18 weeks OSINT pilot training activities. However, as the EDA is not a training provider and cannot be made responsible on a permanent basis for the management and conduct of CSDP-related training programmes; it organised these training activities only as pilot activities and will no longer continue them in 2010 and beyond. The EDA requested in the past on a regular basis that an appropriate EU entity be identified in order to become responsible for their coordination and management of these activities, supported by appropriate budgetary means to run such courses, if deemed useful by the Member States. 27. Other training activities developed and run on a pilot basis concerned 'Train-the-Trainer' package in Counter Improvised Explosive Devices (CIED), CBRN EOD issues and Helicopter Training Programme (HTP), including planning of two live multinational exercises - the first one focussing on environmental training and the second one concentrating on tactics, interoperability and complex mission execution. Other training initiatives on conflict prevention, peace building and gender aspects 28. The Madariaga - College of Europe Foundation (MCF) and the Folke Bernadotte Academy (FBA) are partners in the conduct of a conflict prevention in practise programme in cooperation with the Council Secretariat/Policy Unit, Commission and EPLO organising workshops, dialogue fora and training sessions for building skills and capacities for conflict prevention. 9472/10 RK/ez 12
29. In November 2009, the Council agreed the document "Implementation of UNSCR 1325 and UNSCR 1820 in the context of training for the ESDP missions and operations - recommendations on the way forward" in order to improve the coherence and quality of predeployment training and training for staff deployed in CSDP missions and operations. It also aims to increase the availability and access to gender training, inter alia, through the development of standard elements for a training curriculum on the implementation of UNSCRs 1325 and 1820 in the CSDP. Furthermore, it stresses the importance of strengthening the links between capability building, training and deployment and of raising awareness of gender mainstreaming as a security element and as an important element to achieving greater operational effectiveness. This work was initiated through a study on the current practice in the Member States, an expert seminar (on "Strengthening ESDP missions and operations through training on UNSCR 1325 and 1820") organised by the Swedish presidency in July 2009, and followed by an ESDP gender perspective symposium held in Athens under the aegis of the ESDC." III. Conclusions 30. Based on the above, the following conclusions summarise actions which should be taken soon to improve the CSDP and CSDP-related training: (1) In order to explore better existing training capacities for the benefit of all, Member States should make available to the maximum extent possible their national training activities within the annual EU Training Programme. This should include all types of courses in the diplomatic, civilian and military field linked to the training requirements in the field of CSDP as identified annually at EU level. (2) Member States and training actors at EU level are encouraged to make full use of the Schoolmaster system and to that end ensure that information on training opportunities aimed at civilian personnel likely to be deployed in CSDP missions is included in the Schoolmaster system. All interested actors are recommended to subscribe to receive alerts on new courses in the Schoolmaster application. 9472/10 RK/ez 13
(3) Issues and challenges pertaining to the civilian crisis management training, including mission specific training, should be addressed at all levels, as appropriate. Attention should be given to improving training on topics/areas described above. In the overall context of work carried out to establish national strategies on civilian capabilities or similar national frameworks training should be dealt with as an integral part of efforts to improve both quantitative and qualitative aspects of contributions made by Member States to viable and effective CSDP, used as an important tool of the CFSP. (4) As Third States are regularly invited to participate in EU led missions and operations, and the EU needs to continue to enhance interaction with other actors in the field and to co-operate with relevant international organisations and Third States, participation of Third States and officials from international organisations in specific training activities in the field of CSDP is encouraged, as well as other forms of training cooperation. Proposals for cooperation in the training area should be considered on a case by case basis keeping in mind an overall EU coherent and balanced approach. Member States should also consider on a more regular basis the participation of Third States and international organisations whenever they open their training activities for participation of other nationals, including under the umbrella of the ESDC. (5) Further consideration needs to be given to the sustainable support of the management of OSINT training activities, previously organised by the EDA. Options should be submitted to the Council preferably before the end of 2010. Potential synergies between the EDA and relevant training actors, including the ESDC, on education and training regarding armaments cooperation should be encouraged and further explored. (6) As regards training initiatives by other actors dealing with conflict prevention and peace building, consideration could be given to further open and expand these activities and enhance cooperation at EU level in the light of further experiences gained through the current activities and training actors. 9472/10 RK/ez 14
(7) As regards training on gender aspects for CSDP missions and operations, Member States are invited to implement recommendations adopted in late 2009 under the SE Presidency on the implementing UNSC Resolutions 1325 and 1820. In this context, Member States are encouraged to conduct and offer training courses on mainstreaming human rights and gender issues in CSDP. (8) Regarding the activities and the future of the ESDC, the recommendations of the General Annual Report on ESDC Activities (GAREA) 2010 should be implemented. IV. Recommendation 31. It is recommended that the Council takes note of this report and adopts its conclusions as a basis for further actions to improve training in the field of CSDP. ***** 9472/10 RK/ez 15