Fighting Hunger Worldwide Deputy Executive Director & COO Directive Date: Directivee no.: Revises: Amends: Supersedes: 10 December 2013 COO2013/0011 WFP Civil-Military Coordination - Operational Guidance 1. Given the increasing complexity of emergency response management environments and the involvement of militaries in humanitarian operations, it is essential that international humanitarian organizations can operate in the same spacee as military actors without detriment to the civilian character of humanitarian assistance. As the UN focal point for humanitarian civil-military y coordination (UN-CMCoord)of Military and Civil Defencee Assets OCHA ensures the appropriate and effective use (MCDA) in disaster relief and humanitarian assistance operations. 2. WFP must always provide humanitarian assistance in accordance with the UN humanitariann principles of humanity, neutrality, n impartiality and operational independence. WFP Civil-Military Coordination (WFP-CMC) Basic Operational Guidance has been developed by OME inn order to provide WFP personnel at all levels with a basic knowledge off the global civil- to, military environment to assist in their preparation for, and response natural disasters and/or man-made ( complex) emergencie ies where military forces are deployed. Thee Guidance also communicates WFP s CMC approach to other humanitarian actors. It was prepared with reference to existing UN guidelines and after thorough research and consultations with internal and external stakeholders at both field and a HQ levels. 3. The Guidance should assistt WFP personnel in their relations with various types of military forces, ncluding national militaries, UN peacekeepers, regional militaries and other internationally mandated military forces. The Guidance incorporates existing guidelines and best b practices developed and rolled out by various key stakeholders of the United Nations family over the last decade 1. It is i not intended to duplicate or replace existing guidance 1 e.g. Guidelines on the Use of Foreign Military and Civil Defence Assets in Disaster Relief Oslo Guidelines Rev. 1.1 (November 2007).
page 2 provided by OCHA but rather to augment and a adaptt it to the WFP operational context. 4. The Guidance willl be maintained and updated as we learn from present and future deployments, such as the on-going emergency response in the Philippines. It is i supplemented by the WFP-CMC Keyy Messages (July 2013). The requirements for operational-specific WFP CMC training have been outlined by the CMCC Working Group (including representatives of functional areas and Regional Bureaux) which has well-established inter- is divisional as well as fieldd linkages. A WFP CMC training strategy currently under development. 5. WFP CMC Operational Guidance is recommended reading for WFP personnel prior to t deployment to any humanitarian operations likely to involve military forces f as well as those which may be asked to represent WFP at civil-military working groups, seminars, conferences, exercises and trainings. Amir Abdulla Attachment: 1. WFP Civil-Military Coordination (WFP CMC) Operational Guidance
WFP CIVIL-MILITARY COORDINATION BASIC OPERATIONAL GUIDANCE Version 2013_12
WFP Civil-Military Coordination This WFP Civil-Military Coordination (WFP CMC) Basic Operational Guidance is based on the CMC Resource Paper developed in February 2013 by the World Food Program CMC (WFP-CMC) Working Group and later updated in July 2013. The Resource Paper provides an overview on specific Civil-Military matters related to WFP s operational needs. The Guidance has been developed to provide WFP personnel at all levels with a basic knowledge of the global Civil- Military environment to assist in the preparation for, and response to, natural disasters and complex emergencies. It incorporates existing guidelines and best practices developed and rolled out by various key stakeholders of the United Nations family over the last decade. It also communicates WFP s CMC approach and understanding of mandates and missions, organisational cultures and modus operandi to external key stakeholders. It is intended to provide the clarity and transparency needed for a cohesive humanitarian response to natural disaster and/ complex emergencies. This Guidance is recommended reading for all WFP personnel who are required to engage with the military or prior to a deployment to a humanitarian emergency where military are also deployed. The document will be reviewed and updated by the WFP Civil-Military Working Group (CMC WG) on a regular basis.
Contents SECTION 1: INTRODUCTION... 1 1.1 General... 1 1.2 Purpose... 2 1.3 Scope... 2 1.4 UN-CMCoord Guidelines... 2 SECTION 2: WFP CIVIL-MILITARY COORDINATION... 4 2.1 IASC Principles and Concepts... 4 2.2 IASC Operating Principles... 5 SECTION 3: WFP OPERATIONAL CONTEXT... 6 3.1 Natural Disaster Emergencies... 6 3.2 Complex Emergencies... 6 3.3 Challenges... 6 3.4 Use of Armed Escorts... 7 3.5 Country Specific Guidelines... 8 3.6 WFP CMC Operational Considerations... 9 SECTION 4: WFP CMC Framework... 11 4.1 Structure... 11 4.2 Roles, Responsibilities and Accountability in WFP CMC... 11 4.2.1 Rome HQ Divisional CMC Focal Points... 11 4.2.2 Regional CMC Focal Points... 11 4.2.3 Liaison Officers... 12 4.2.4 Contact between WFP, the Global Logistics Cluster and the Military... 12 4.3 Training and Exercises... 13 4.4 Military Involvement in Humanitarian Emergencies... 13 4.4.1 Information and Communications Support/Sharing... 13 4.4.2 Coordination... 13 4.4.3 International Militaries in complex emergencies and natural disaster emergencies 14 4.5 Cooperating Effectively with the Military... 14 4.5.1 Liaison... 14 4.5.2 Potential Areas of Cooperation with Host Nation s Militaries... 15 4.5.3 Information Sharing on WFP CMC-Specific Operational Matters... 16 4.5.4 Joint Planning... 16 4.6 Examples of WFP CMC Involvement in Humanitarian Emergencies... 17 4.6.1 National militaries in peace time/natural disaster emergencies... 17 4.6.2 Use of MCDA in complex scenarios/natural disaster emergencies... 17 SECTION 5: Requesting Military Assistance... 18 5.1 Requesting Military Assistance... 18
5.2 Military Assistance Exit Strategy... 19 SECTION 6: References and Attachments... 20 6.1 References... 20 6.2 Attachments... 21
SECTION 1: INTRODUCTION 1.1 General In responding to an emergency or humanitarian disaster, many countries will deploy their military or civil defence forces to assist. In these circumstances, it is essential to establish and maintain dialogue and interaction between civilian and military actors in order to protect and promote humanitarian principles. The Office of the Coordinator of Humanitarian Affairs (OCHA) is the custodian of the United Nations Humanitarian Civil- Military Coordination (UN-CMCoord) Guidelines and Principles 1. UN-CMCoord helps to develop, amongst others, context-specific policy based on internationally agreed guidelines and establishes humanitarian civil-military coordination mechanisms, ensuring staff members are trained to make those mechanisms work. UN-CMCoord is essential in complex emergencies/high-risk environments in order to facilitate humanitarian access, the protection of civilians, as well as the safety and security of humanitarian aid workers. It enhances a broad understanding of humanitarian action and guides Member States and military actors on how best to support that action. The UN- CMCoord Guidelines and Principles also rely on the principle of Last Resort for any use of military and civil defence assets (MCDA). The number of stakeholders and responders (including humanitarian, military, political, economic, social and development actors) involved in disaster response has increased significantly over the past decade. WFP personnel are required to undertake assignments or missions in areas of the world affected by sudden- and slow-onset natural and man-made (complex) disasters, or a combination of both. WFP Civil- Military Coordination (WFP CMC) Guidance is intended to improve the timeliness and effectiveness of WFP emergency response operations in which national/international militaries and/or civil defence personnel may be involved. This Guidance has been developed under WFP s Preparedness and Response Enhancement Programme (PREP). One of the objectives of PREP is to strengthen WFP s partnership with national authorities, the international humanitarian community and other humanitarian actors for a more effective humanitarian response. This includes a strengthened regional WFP CMC capability and presence. WFP personnel might need to establish relations/liaison with military and/or civil defence forces in association with existing OCHA CMCoord and/or governmental coordination mechanisms. In these circumstances, access could be a key enabler, allowing WFP to assess the situation of the affected population and, if necessary, to deliver required humanitarian aid in close coordination with other humanitarian partners. In addition to the interaction in an area of deployment, WFP personnel may be asked to represent WFP at civil-military working groups, seminars, conferences, exercises and trainings. A glossary of terms and acronyms is provided at Attachment 1. 1 In accordance with General Assembly Resolution GA Res 46/182 and GA Res 59/141 and Inter Agency Standing Committee policies and guidance. See http://www.unocha.org/what-we-do/coordination-tools/un- CMCoord/overview Page 1 of 21
1.2 Purpose The purpose of this document is to provide WFP personnel with the basic guidance they need in order to relate to, and when appropriate obtain support from, military actors and/or civil defence and civil protection units during emergency operations without compromising humanitarian principles and/or space (see Attachment 2). It will assist WFP personnel at all levels in their relations with various types of military forces, including national militaries, UN peacekeepers, regional military and other internationally mandated military forces, as well as integrate such a WFP response into a wider humanitarian military strategy, to ensure coherency and consistency in the overall humanitarian approach and interaction. 1.3 Scope While the Guidance is primarily intended for WFP personnel, it may also be useful for our cooperating and operational partners. The Guidance is aligned with UN-CMCoord guidelines and principles and other UN agency approaches. It is not intended to duplicate existing guidance, but focusses on WFP-specific operational requirements. The scope: a. includes coordination with both international and national MCDA; b. addresses gaps and adapts existing civil-military guidance to WFP s work/mandate; c. includes scenarios from natural disasters to complex environments; and d. considers situations from coexistence to cooperation (see Fig 1 below). The Guidance is not exhaustive as WFP CMC-related situations vary widely. It addresses the main dilemmas and challenges and provides some overarching principles. The Guidance should be applied flexibly, depending on the context. The Guidance may also help guide WFP personnel in their coordination effort with national military or civil defence units and National Disaster Management Authorities (NDMAs). The relations between humanitarian actors and non-state armed groups are outside of the scope of this paper. 1.4 UN-CMCoord Guidelines Sources used in the drafting of this WFP CMC Guidance include the following documents, which should be referred to for more detailed information: - Oslo Guidelines: The Use of Military and Civil Defence Assets in Disaster Relief (May 1994; Rev 1.1 November 2007) - MCDA Guidelines: The Use of Military and Civil Defence Assets to Support United Nations Humanitarian Activities in Complex Emergencies (Rev. 1, January 2006) - IASC Reference Paper on Civil-Military Relationship in Complex Emergencies (June 2004) - Updated Inter-Agency Standing Committee (IASC) Non-Binding Guidelines on the Use of Armed Escorts for Humanitarian Convoys dated 27 February 2013 (February 2013) - Country/Situation Specific Guidelines - UN-CMCoord Officer Field Handbook under revision N.B. When used, text quoted from sources is attributed and shown in italics. Page 2 of 21
The Range of Civil-Military Relationships and UN CMCoord Strategy COOPERATION In a situation of cooperation, UN CMCoord focuses on improving the effectiveness and efficiency of thecombined efforts. CO-EXISTENCE In a situation of co-existence, UN CMCoord focuses on minimizing competition and de-conflicting. Peacetime Combat Scope for civil-military cooperation (for example, joint-operations) decreases as the intensity of the military operation increases towards combat. Joint operations are more acceptable in peace-time natural disaster response. COORDINATION UN CMCoord basic strategy ranges from co-existence to cooperation. In either side of the spectrum and in between, coordination i.e., the essential dialogue and interaction is necessary in order to protect and promote humanitarian principles, avoid competition, and minimize inconsistency. Source: UN CMCoord Course Module Figure 1 Page 3 of 21
SECTION 2: WFP CIVIL-MILITARY COORDINATION 2.1 IASC Principles and Concepts WFP CMC: Basic Operational Guidance The IASC principles and concepts for humanitarian action 2, including Civil-Military coordination for humanitarian purposes in complex emergencies, are summarised below: A. Humanity, Neutrality and Impartiality. Ample consideration must be given to finding the right balance between a pragmatic and a principled response, so that coordination with the military would not compromise humanitarian imperatives. B. Humanitarian Access to Vulnerable Populations. Coordination with the military should be considered to the extent that it facilitates, secures and sustains, not hinders, humanitarian access. C. Perception of Humanitarian Action. The delivery of humanitarian assistance to all populations in need must be neutral and impartial it must come without political or military conditions and humanitarian staff must not take sides in disputes or political positions. D. Needs-Based Assistance Free of Discrimination. Humanitarian assistance must be given without adverse discrimination of any kind. E. Civilian-Military Distinction in Humanitarian Action. Humanitarian workers must never present themselves or their work as part of a military operation, and military personnel must refrain from presenting themselves as civilian humanitarian workers. F. Operational Independence of Humanitarian Action. Humanitarian actors must retain the lead role in undertaking and directing humanitarian activities. Humanitarian organisations must not implement tasks on behalf of the military nor represent or implement their policies. G. Security of Humanitarian Personnel. Any perception that humanitarian actors may have become affiliated with the military forces within a specific situation could impact negatively on the security of humanitarian staff and their ability to access vulnerable populations. H. Do No Harm. Considerations on Civil-Military coordination must be guided by a commitment to do no harm. I. Respect for International Legal Instruments. Both humanitarian and military actors must respect international humanitarian law as well as other international norms and regulations, including human rights instruments. J. Respect for Culture and Custom. Respect and sensitivities must be maintained for the culture, structures and customs of the communities and countries where humanitarian activities are carried out. 2 Civil-Military Relationship in Complex Emergencies: an IASC Reference Paper (28 June 2004) Page 4 of 21
K. Consent of Parties to the Conflict. WFP CMC: Basic Operational Guidance The risk of compromising humanitarian operations by cooperating with the military might be reduced if all parties to the conflict recognize, agree or acknowledge in advance that human-itarian activities might necessitate Civil- Military coordination in certain exceptional circumstances. L. Option of Last Resort. Use of military assets, armed escorts, joint humanitarian-military operations and any other actions involving visible interaction with the military must be the option of last resort. M. Avoid Reliance on the Military. Humanitarian agencies must avoid becoming dependent on resources or support provided by the military. 2.2 IASC Operating Principles Decisions to accept military assets must be made by humanitarian organizations, not political authorities, and based solely on humanitarian criteria. Military assets should be requested only where there is no comparable civilian alternative and only the use of military assets can meet a critical humanitarian need. The military asset must therefore be unique in nature or timeliness of deployment, and its use should be a last resort. A humanitarian operation using military assets must retain its civilian nature and character. The operation must remain under the overall authority and control of the humanitarian organization responsible for that operation, whatever the specific command arrangements for the military asset itself. To the extent possible, the military asset should operate unarmed and be civilian in appearance. Countries providing military personnel to support humanitarian operations should ensure that they respect the code of conduct and principles of the humanitarian organization responsible for that deployment. The large-scale involvement of military personnel in the direct delivery of humanitarian assistance should be avoided. Any use of military assets should ensure that the humanitarian operation retains its international and multilateral character. Page 5 of 21
SECTION 3: WFP OPERATIONAL CONTEXT 3.1 Natural Disaster Emergencies Emergencies are defined by WFP as urgent situations in which there is clear evidence that an event or series of events has occurred which causes human suffering or imminently threatens human lives or livelihoods and which the government concerned has not the means to remedy; and it is a demonstrably abnormal event or series of events which produces dislocation in the life of a community on an exceptional scale 3. The Inter-Agency Standing Committee (IASC) has defined a disaster 4 as a serious disruption of the functioning of a community or a society causing widespread human, material, economic or environmental losses which exceed the ability of the affected community or society to cope using its own resources. It is the responsibility of national governments to protect and assist those living in their countries when disasters strike. Member States affected by natural disaster may call on international military and civil defence forces for assistance early in the response to disasters. If NDMAs are present, they should lead the use of national and international MCDA for the response. 3.2 Complex Emergencies The IASC defines a complex emergency as a humanitarian crisis in a country, region, or society where there is a total or considerable breakdown of authority resulting from internal or external conflict and which requires an international response that goes beyond the mandate or capacity of any single agency and/or the on-going UN country programme 5. Military forces are likely to be a key component in an international response. This could be a peacekeeping or a peace enforcement force, but other types of military presence are possible. In either case, humanitarian assistance would be needed to mitigate and hopefully resolve the humanitarian crisis. In conflict settings where military actors may be present, it is crucial for humanitarians to ensure that the principles of humanity, neutrality, impartiality and operational independence are not compromised. Humanitarians will also need to preserve their humanitarian space and access to beneficiaries. Fig. 2 below depicts a model for appropriate relief tasks for military actors, based on missions. These tasks may be direct, indirect or infrastructure support. UN-CMCoord Guidelines identify situations where MCDA could be used to support humanitarian operations. Humanitarians on the ground (including WFP CMC personnel) and WFP Senior Management should avoid involving military personnel in the direct delivery of humanitarian assistance. 3.3 Challenges Given the diversity of their mandates and structures, it is difficult to generalise about military and humanitarian organizations. Humanitarian organizations will inevitably have different objectives to the military and they each face different types of challenges. Fig. 2 illustrates the main differences in objectives between humanitarian and military actors in a United Nations Security Council Resolution (UNSCR) mandated mission. 3 Executive Board 31 January 2 February 2005 (WFP/EB.1/2005/4-A/Rev.1). 4 Internal Displacement, Inter-Agency Standing Committee Operational Guidelines on the Protection of Persons in Situations of Natural Disasters, Washington DC, January 2011, pp. 55, 58. 5 IASC: Civil-Military Guidelines and References for Complex Emergencies (www.humanitarianinfo.org/iasc/). Page 6 of 21
Objectives: Humanitarian and Military Actors Humanitarian Actors Figure 2 WFP CMC: Basic Operational Guidance UN SCR Mission/Military Reason People in need International concern Right International Laws and Conventions UNSC Resolution Method Consent Legal Mandate Purpose Assist those in need Implement Resolution WFP s response to sudden- and slow-onset natural disasters or to complex/protracted situations could involve a different range of CMC challenges. The main operational limitations on humanitarian and military actors is depicted in Fig. 3 below. Humanitarian Operations vs Military Operations Needs Driven Mandate Driven Need Peace Operation Mandate (Fixed) Humanitarian Mandate (Flexible) Need Need Task Task Task Ref: AusAID 2007 Limits of Response (Flexible) Limits of Response (Fixed) Figure 3 To be effective, Civil-Military relations require a mutual understanding of, and respect for, each other s mandate, organisational culture and modus operandi. It is important that the operational environment is well understood in order not to compromise humanitarian principles and therefore possibly lose access to the affected and vulnerable population. 3.4 Use of Armed Escorts The updated IASC Guidelines 6 provide a framework for determining if and when to use armed escorts in a principled manner, and for understanding the implications of their use in humanitarian operations. The overriding principle of these Guidelines is: armed escorts should be used only as a last resort and in exceptional cases, and only when a set of key criteria is fulfilled. These key criteria are: a. Humanitarian Need & Programme Criticality lack of humanitarian action would lead to unacceptable human suffering b. Responsible Authorities unable/unwilling to permit movement without the use of armed escort 6 Source: Updated Guidelines on the Use of Armed Escorts for Humanitarian Convoys - IASC Non-Binding Guidelines (27 February 2013) Page 7 of 21
c. Safety & Security armed escort is a deterrent to enhance safety; does not compromise security of humanitarian personnel or beneficiaries d. Sustainability use of armed escort will not compromise future humanitarian operations When the required criteria cannot be fully met, it is WFP s responsibility to balance security risks with program criticality. In every case, the use of armed escorts should be geographically limited, time-bound and with specific purpose. There should be no blanket adoption of armed escorts as a modality for humanitarian operations. 3.5 Country Specific Guidelines Within the facilitating role of UN OCHA and when deemed necessary, country-specific guidelines should be developed through an HCT process in all above-mentioned emergencies in order to: a. Provide a unified strategy towards civil military relations for the RC/HC (Resident/ Humanitarian Coordinator) and therefore the Humanitarian Country Team (HCT), recognizing the role of the national military and other militaries present (regional, peacekeeping, etc.) b. Provide the affected Member State and the national military with a better understanding of the humanitarian principles under which the international humanitarian agencies operate. UN-CMCoord country-specific guidelines should be the basis for WFP CMC specific operations, providing clarity and transparency on WFP s role in logistics, communications systems and air, sea and road transport. CMC country-specific guidelines should clearly state WFP s operational role. In addition, guidelines specify that: a. the use of the military asset is based solely on humanitarian criteria; b. it is a last resort, when a highly vulnerable population cannot be assisted or reached by any other means and there is no appropriate civilian alternative; c. the urgency of the task at hand demands immediate action; d. use of the asset is clearly limited in time and in scale; and e. use of the asset is approved by the HCT (if present). Fig. 4 below indicates the different types of support that the military might provide according to the context and their mandate. Page 8 of 21
Possible Military Support Roles Direct Assistance Face-to-face distribution of goods and services Never in complex emergencies! Indirect Assistance One step removed from the population Infrastructure Support Provision of general services that facilitate relief, but are not necessarily visible or solely for the benefit or the affected population SECURITY The main and foremost role that the military would be expected to take Reference: UN DPKO Standard Training Module UN-CIMIC Course, GPOI Figure 4 3.6 WFP CMC Operational Considerations OCHA is the UN and IASC focal point for UN-CMCoord. The OCHA Civil-Military Coordination Section (CMCS) leads and supports the development of global and country-specific UN-CMCoord guidelines. WFP and the Global Logistics Cluster should actively participate in these processes. WFP must always provide humanitarian assistance in accordance with the humanitarian principles of humanity, neutrality, impartiality and operational independence. WFP s approach to CMC must be consistent with the Oslo 7 and MCDA 8 guidelines. WFP will always follow the principle of Last Resort 9. which is a situation where: o a specific capability or asset requirement that cannot be met with available civilian assets has been identified; and o foreign military and civil defence assets would help meet the requirement and provide unique advantages in terms of capability, availability, and timeliness; and o foreign military and civil defence assets would complement civilian capabilities. Any MCDA support should preferably have an indirect nature. WFP engages with military and civil defence actors on a range of issues, not only when MCDA is used. These actors include national armed forces; national civil defence/protection bodies; regional arrangements, alliances and coalitions and UN peacekeeping missions. The type of engagement with militaries in terms of information sharing mechanisms, liaison arrangements and visibility of joint presence must be carefully gauged in each context. For example, in a coexistence context (e.g. Mali, DRC), information is shared but visible interaction between 7 Guidelines on the Use of Foreign Military and Civil Defence Assets in Disaster Relief, Rev. 1.1 Nov. 2007 8 Guidelines on the Use of Military and Civil Defence Assets to Support United Nations Humanitarian Activities in Complex Emergencies, Rev. 1 Jan. 2006 9 From the Pamphlet on Last Resort produced by OCHA/ESB/CMCS in consultation with the Consultative Group on the Use of MCDA - April 2012. Page 9 of 21
humanitarians and militaries must be minimised to protect humanitarian principles and space. WFP avoids engaging with militaries in the delivery of humanitarian assistance to affected populations in conflict settings. Use of MCDA will always be a last resort. In the case of natural disasters, WFP may coordinate with military actors, where appropriate and in line with existing norms, and involve them in the indirect activities such as upstream pre-positioning of relief items and infrastructure support in order to facilitate the delivery of assistance by WFP and its partners. Typically, CMC activities in which WFP engages include: o Operational de-confliction. o Use of armed escorts. o Use of enhanced logistics capacities (e.g. Global Logistics Cluster). All of the above will involve setting up the appropriate information and communication channels. In accordance with IASC guidelines, a WFP operation using MCDA must retain its civilian nature and character. While all military assets will be under military control, the operation as a whole must remain under humanitarian authority and control. WFP will use MCDA in a manner that minimises their visibility in order to preserve and communicate the humanitarian character of the operation. Humanitarian assistance must be provided with full respect for the sovereignty of States. The affected state has primary responsibility for providing and requesting humanitarian assistance within its borders and it has the right to request, accept or decline the use of UN or other MCDA by humanitarians. Every CMC related situation is different and decisions to use any MCDA must remain context specific. WFP must adhere with existing international guidance and principles while maintaining operational flexibility and independence. WFP interacts with civil/military actors in partnership with OCHA/CMCS under the leadership of the Humanitarian Coordinator 10, the MCDA Logistics Work Group (WG), host governments and relevant NDMAs, as appropriate often using the Global Logistics Cluster as an entry point. In order to ensure the safety and security of local populations and of humanitarian actors, and to ensure access to people in need of humanitarian assistance, lines of communication between humanitarian actors and Member States and their military and civil defence units must be maintained at the strategic (Global HQ), operational (RB/CO) and tactical (field) levels. WFP CMC helps facilitate logistics aspects response to natural disaster and complex emergencies, as well as post-emergency and development operations. 10 IASC Terms of Reference for the Humanitarian Coordinator (11 December 2003) Page 10 of 21
SECTION 4: WFP CMC Framework 4.1 Structure Establishing what CMC structures will be used to coordinate humanitarian response is a key component of preparedness, which may vary according to country capacities, already existing in country mechanisms and the specific context. Decisions at the country-level and/or sub regional level should be made on a needs basis. WFP has appointed WFP Focal Points (FPs) as shown in the organizational structure below. Permanent CMC Focal Points: OME FP Rome HQ Log and Log Cluster FP Policy FP Ad-hoc deployments: WFP CMC officer deployed to liaise and advise (e.g. Mali, South Sudan, Goma in DRC, CAR, etc.) WFP CMC liaison officers deployed for humanitarian/military de-confliction (e.g. LNO in NATO Joint Force Command (Naples) to de-conflict during Libya 2011) Deployments to advise and liaise Log Cluster MCDAs (e.g. Philippines 2013) WFP may also seek the support of stand-by partners for the above deployments. 4.2 Roles, Responsibilities and Accountability in WFP CMC Roles, responsibilities and accountability in WFP CMC will vary in adaption to the emergency situation, capabilities and capacities, existing coordination mechanisms, key stakeholders available and level of engagement. 4.2.1 Rome HQ Divisional CMC Focal Points FPs have been appointed in OSZ, OSL/Global Logistics Cluster and OMEP to provide policy and operational support to RB s/co s. These FP s may provide support and advice to ad-hoc field requests (related to the use of armed escorts, or on country specific guidelines), and may also help build the CMC capacity of RB/CO s. 4.2.2 Regional CMC Focal Points. Regional CMC FPs have been appointed in Bangkok (OMB), Dakar (OMD), Nairobi (OMN) and Panama (OMP). FPs will also be appointed in other regions. The roles of the FPs are to: Support COs on CMC matters, including dissemination of guidance and provision of training, as well as providing specific support to CO CMC FP s as they gradually get nominated (as suggested by some participants during the May 2012 PREP Outreach Network) Page 11 of 21
WFP CMC: Basic Operational Guidance Provide inputs to the WFP-specific CMC Guidance currently under development in HQ. Document and systematize CMC aspects of crises in the region, including challenges and issues faced, as well as lessons identified and learned, and potential recommendations based on those for the HQ guidance to include. Participate in the development of country specific guidelines. Ensure close liaison with CMC players in their regions, and coordination with HQ. N.B. Appointing national staff for these roles poses some key advantages, including their existing networks with CMC actors in the country and their knowledge of the local language. 4.2.3 Liaison Officers A roster should be maintained of liaison officers or other temporary deployment of experts to RB/CO, NATO, etc. during an emergency (no budgetary implications as can be cost-shared by the Global Logistics Cluster or UNHAS). Liaison officers will be required to de-conflict humanitarian and military operations by advising relevant organizations (e.g. NATO) or militaries (e.g. US in Haiti) on humanitarian movements and coordinates to avoid casualties. Liaison officers must be respected and accepted. He/she has to be knowledgeable of UN processes and how to interact with NGOs. It is crucial for the liaison officer to understand boundaries, including what is not under his/her responsibility. The liaison officer has to be transparent about his/her duties in order to gain trust. As well as providing liaison, the liaison officer acts as interlocutor, adviser and facilitator. 4.2.4 Contact between WFP, the Global Logistics Cluster and the military On the ground, contact between WFP, the Global Logistics Cluster and the military tends to focus on the following key areas: Use of military assets to assist in delivering relief Use/exchange of transport assets (Aircrafts/helicopters, trucks, rail) Provision of services and equipment (Fuel for aircrafts, vehicles or bulldozers, and maintenance of assets and equipment) Infrastructure rehabilitation Quick Impact Projects (QIPs), such as roads or bridges) Safety and evacuation (security evacuation, medical evacuation, shared medical facilities and services) Participation in trainings and exercises prior to a humanitarian emergency Contingency planning efforts for Military Disaster Response Operations (DROs) Page 12 of 21
4.3 Training and Exercises Building up capabilities is the key to success for effective WFP CMC. To train WFP CMC Personnel at all levels, in the general humanitarian CMC framework, principles and concepts must be seen as a first priority. The specific operational WFP CMC training requirements have been outlined by the (WFP) CMC WG and are currently under development. The trainings/educational events and participation in civilian and military exercises are designed to improve WFPs timeliness and effectiveness in humanitarian response operations involving national and international militaries, civil defence bodies, and their assets. By engaging in preparedness activities with military and civilian actors and by strengthening the internal capacity of the organization, WFP will be better placed during the onset of an emergency to (i) quickly define the nature of the agency s engagement in CMC and (ii) to devise the most appropriate format of dialogue and information-sharing mechanisms with relevant military actors for WFP logistic specific activities. Participation in civil and military exercises continues to be important in order to establish and maintain relationships with civilian authorities, and national and international militaries. These types of engagements allow actors from all sectors and operations to work together to create a better understanding of each other s mandate and limitations. Challenges such as the use of last resort, communications, life support and logistics are just a few examples which might be encountered and addressed in these types of forums. WFP is developing a set of criteria governing participation in these events. WFP CMC at times goes beyond logistics, so when the event has a broader focus, decisions to participate must be taken in consultation with other WFP divisions, and within the CMC WG. OME, Policy and Logistics/Global Logistics Cluster FPs may participate in external and internal Civil-Military coordination workshops, training and exercises. 4.4 Military Involvement in Humanitarian Emergencies 4.4.1 Information and communications support/sharing One of the most likely capabilities to be shared between WFP and the Host Nation military will be the access to real time information. WFP brings a wide range of communications capabilities to an emergency. What is important is that WFP have compatible systems or at the least access to data that can be used for planning the logistics response to an event. Assessments (infrastructure, ports, road networks) Radio frequency Management Satellite imagery and remote sensing 4.4.2 Coordination WFP will need to be closely tied in to the aviation component of the Host Nation military running air operations during the emergency. For example, for advice and guidance on: Air space management Slot system Prioritization of humanitarian missions Exchange of liaison officers as part of Strategic and Operations Planning Cells Page 13 of 21
WFP CMC will coordinate and communicate with Civil-Military Coordination key stakeholders at all levels as shown in Fig 5 below. External WFP Civil-Military Engagement Strategic Operational Tactical (Field Level) Select Strategic External Partners e.g. DoD, NATO, ECOWAS Future DPKO, DPA/TCC missions leads/strategic partners International Forces Peacekeeping Missions HC/RC Rosters Host Govts/NDMA Private Sector Regional Bodies External Militaries (active by Region) Stand-by Partners Humanitarian Partners WFP Cooperating Partners Host Govts/NDMA National and International Militaries Stand-by Partners Humanitarian Partners Cluster Participants Private Sector Figure 5 4.4.3 International Militaries in complex emergencies and natural disaster emergencies In the case of a sudden onset disaster within a complex emergency, special care has to be taken to adapt the MCDA Guidelines to the specific situation including The primary role of an international mandated military mission is to provide a safe and secure environment, but also to enable the delivery of humanitarian assistance by respective mandated organizations. In complex emergencies the relationship between militaries and humanitarians will be that of coexistence, that is, they will share information but humanitarians may need to avoid any visible interactions with the militaries (peacekeepers, etc.) so as to protect humanitarian principles/space, Within the facilitating role of UN OCHA, country-specific CMCoord guidelines may be developed (led by the HCT) to clarify roles to be fulfilled humanitarians and the military. If the decision is taken to use MCDA, WFP needs to consider that due to military/mission priorities MCDAs can be withdrawn or redeployed with very short notice, therefore possibly creating gaps in the humanitarian effort. 4.5 Cooperating Effectively with the Military Effective communication, coordination and, where appropriate, cooperation between all actors in-country is essential, specifically in relation to the following: 4.5.1 Liaison Coordination between the humanitarian/civil community and the military (domestic and/or foreign forces) ranges from cooperation to coexistence. Information exchange should always be maintained for the complete range of WFP CMC approaches. Page 14 of 21
Appropriate Liaison arrangements for information exchange are depicted in Fig. 6 below. CIV-MIL LIAISON Strategy: Cooperation Coexistence Method: Collocation Liaison Exchange Limited Liaison Interlocutor CIV MIL Note: Collocation should never be used in a complex emergency! LO CIV MIL LO LO CIV MIL LO CIV E.g. UN CMCoord MIL Source: UN-CMCoord Concept, Annex C Figure 6 4.5.2 Potential areas of cooperation with Host Nation s militaries Following are some of the key areas in which WFP could possibly cooperate with the host nation s military forces: Transport: WFP may wish to access Host Nation (military) assets in its efforts to rapidly establish a logistics platform for the humanitarian community. For example: Strategic lift assets (both Air and Sea) Tactical air lift assets (Rotary wing aircraft) Coastal delivery platforms (Landing crafts, including Hover crafts) Ground vehicles (5-ton and above) Capability and permission to fly WFP staff or for passenger movements Rehabilitation for Transportation Infrastructure: WFP may request support (in material and technical terms) from the Host Nation (and or its military) to ensure that ports (air, sea, and helicopter), bridges and roadways are open and available in order to better assist the humanitarian community. For example: Aerial Ports of Embarkation and Disembarkation (APOEs and APODs) Sea Ports of Embarkation and Disembarkation (SPOEs and SPODs) Heliports and Landing Zones Material Handling Equipment (MHE) for both air and sea Aerial Port of Embarkation support equipment (K-loaders, cargo handling equipment, and forklifts) Port opening capabilities (Maersk type barges) Page 15 of 21
Container and handling services (including overhead cranes, wretches and stackers) Fire/Rescue capability for both airports and sea-ports. Services: Military units may have specific operational facilities and services which WFP may seek access to. For example: Fuel supply, facilities, and dispensing equipment. Power grid and power generation equipment Support for runway operations (maintenance and landing lights) WFP Life (Staff) Support Requirements: WFP and other humanitarian staff may need to draw life support from the military. For example: Medical capability including medical evacuations. Use of Search and Rescue Teams 4.5.3 Information sharing on WFP CMC-specific operational matters Some considerations when sharing information on WFP CMC-specific matters are: Information sharing between all parties is critical to maximizing unity of effort (i.e. synergy). Maintaining transparency in the information sharing process will foster trust and confidence between deployed military forces, NDMAs, and the humanitarian community. The military command responsible for an operation should ensure that maximum effort is provided to share specific operational information with WFP CMC Personnel. The military should focus on supplying WFP CMC with logistics information, including communications systems and air, sea and road transport matters/ challenges. Military limitations arise when (military) operational security (MIL OpSec) concerns exist. De-confliction, including de-classification of MIL OpSec information, needs to be achieved in order to support an effective coordination effort. Some actors within the humanitarian community maybe reluctant to share information on their activities for fear of compromising their perception of neutrality, thereby losing access to the affected populations. It is important that the military understand several key considerations when establishing a non-secure platform while supporting HA/DR operations, e.g: o Setting up an unclassified network for e-mail communications. o Supplying a single point of contact mobile phone number with 24/7 (24 hours and 7 days a week) availability. o 4.5.4 Joint Planning Information must be timely and dated with the appropriate date/time groups. Also there should be a standard form established for information that will be shared. The best possible starting point for a joint planning effort is prior to a humanitarian emergency Coordination should start before the complex emergency/ natural disaster Page 16 of 21
strikes and should include all elements of preparation, including common training and possibly exercises, based on mutual respect and aim for a better understanding of each other s capabilities, limitations and organisational culture. The primary aim of WFP CMC Joint Planning is to ensure that proposals contribute to an overall strategy (synergy). 4.6 Examples of WFP CMC Involvement in Humanitarian Emergencies In the examples provided, the following principles applied (Source: Oslo/MCDA Guidelines): The affected Member state had primary responsibility for providing humanitarian assistance within its borders. The affected Member State has the right to decline the use of MCDA offered by other Member States and/or UN MCDA 11 (sovereignty) 4.6.1 National militaries in peace time/natural disaster emergencies Example: Japan tsunami, Italy Earthquake, India flooding. The main reason that Member States involve national militaries in natural disaster emergencies is timeliness. If an NDMA exists, liaise and coordinate with the NDMA, and always coordinate with OCHA/CMCS in regards to WFP CMC actions. The NDMA should be in the lead of the overall humanitarian response and the national military forces support to the response. 4.6.2 Use of MCDA in complex scenarios/natural disaster emergencies In a complex emergency national militaries may be involved in combat operations. Peacekeeping operations may also be present. It is key for humanitarian actors to strive to uphold humanitarian principles/space. This may imply avoiding any visible interaction with militaries. In these instances, UN OCHA CMCoord will lead, perhaps through the set-up of a Civil-Military Coordination Cell (CMCC) interactions between militaries and humanitarians. Example 1: Pakistan Limitations were imposed on the use of foreign military rotary wing assets. Civil-Military air operation coordination mechanisms required (Joint Aviation Coordination Cell) Example 2: Democratic Republic of Congo (DRC), Mali. With the operationalization of the Force Intervention Brigade in DRC, and the deployment of MINUSMA in Mali, humanitarians need to ensure their operations, principles and space are not affected by the presence of the peacekeeping components. This may entail, at times, separate messaging/public information. 11 Guidelines On The Use of Military and Civil Defence Assets To Support United Nations Humanitarian Activities in Complex Emergencies, p. 4 Page 17 of 21
SECTION 5: Requesting Military Assistance 5.1 Requesting Military Assistance In an integrated UN mission, the Special Representative of the Secretary General (SRSG) is the maximum UN authority on the ground. The WFP Country Director (CD), in agreement with the HCT (Humanitarian Country Team) may request the Deputy SRSG Humanitarian Coordinator (HC) the use military assets This request will be sent, via CMCS/OCHA, to the Emergency Coordinator (EC), In-Country Humanitarian Coordination Resident/Humanitarian Coordinator (RC/HC) BENEFICIARIES GOVERNMENT LOCAL AUTHORITIES DONORS UN Country Team UNHCR WFP UNICEF IOM WHO UNDP OCHA Other UN programmes, funds and specialized agencies RSG-IDPs The World Bank RED Cross/Crescent Movement ICRC* IFRC NGO Community International Local Humanitarian (or IASC) Country Team *N.B. ICRC fulfills an observer role in the HCT Figure 8 In-country humanitarian coordination actors are shown in Fig. 8 above. The Emergency Relief Coordinator (ERC), in consultation with the IASC, provides the overall guidance for a particular complex emergency including parameters for the use of UN MCDA to support UN humanitarian activities. WFP CMC HQ/RB/CO should have a focal point to facilitate communication with UN agencies, NGOs, local partners, and to actively participate in the joint planning effort for WFP CMC specific operational challenges. The appropriate humanitarian coordination mechanism, if available (it may a CMCC set-up by OCHA on the ground), may be used to for humanitarian and military actors to share information. If there is any doubt as to the WFP CMC country policy, all WFP Personnel should refer to the WFP CD. Guidance can also be sought from WFP CMC liaison officers on the ground and WFP CMC Focal Points in addition to accessing UN coordination policy promulgated at the country and global level through WFP CMC and OCHA. [Note: Past experience has shown that a lack of understanding and respect of the humanitarian principles could lead to misunderstanding, misuse or over reliance of military assets as well as impact on the perception of WFP and its implementing partners staff neutrality (Non-Allegiance)]. Page 18 of 21
5.2 Military Assistance Exit Strategy Any use of Military Assistance should be, at its onset, clearly limited in time and scale and present an exit strategy element that defines clearly how the function it undertakes could, in the future, be undertaken by civilian personnel. Page 19 of 21
SECTION 6: References and Attachments 6.1 References a) WFP- CMC Key Messages (July 2013) b) WFP- CMC Resource Paper (revised July 2013) c) WFP- CMC Strategy Paper (February 2013) d) IASC Paper: UN integration and humanitarian space: building a framework for flexibility (01 July 2013) e) The United Nations Civil-Military Coordination (UN-CMCoord) Officer Field Handbook (UN OCHA) (2008; under revision) f) UNHCR and the Military, A Field Guide g) Guidelines on the Use of Foreign Military and Civil Defence Assets in Disaster Relief Oslo Guidelines - Rev. 1.1 (November 2007). h) Civil-Military Guidelines and Reference for Complex Emergencies (2008), comprising: 1. Guidelines on the Use of Military and Civil Defence Assets to support United Nations Humanitarian Activities in Complex Emergencies MCDA Guidelines - Rev. 1 (January 2006). 2. Updated Guidelines on the Use of Armed Escorts for Humanitarian Convoys - IASC Non-Binding Guidelines (27 February 2013) i) Department of Peacekeeping Operations (DPKO), Civil-Military Coordination Policy (9 September 2002) j) Global Peace Operation Initiative (GPOI) Reference Materials Online References: http://www.humanitarianinfo.org/iasc/pageloader.aspx http://www.unocha.org/ https://docs.unocha.org/sites/dms/documents/last%20resort%20pamphlet%20- %20FINAL%20April%202012.pdf http://www.unhcr.org/cgi-bin/texis/vtx/home http://www.unicefinemergencies.com/ www.un.org/en/peacekeeping/documents/newhorizon.pdf www.un.org/en/peacekeeping/documents/civilhandbook/chapter3.pdf http://pbpu.unlb.org/pbps/library/capstone_doctrine_eng.pdf Page 20 of 21
6.2 Attachments 1. Glossary of Civil-Military Terms and Acronyms 2. OCHA on Message: Humanitarian Principles 3. Specialised Humanitarian and Military Staff Positions 4. Civil-Military Coordination Policies and Guidelines 5. Examples of Military Logistics Abbreviations Page 21 of 21
Attachment 1: Glossary of Civil-Military Terms and Acronyms CA CIMIC CMA CMC CMI CMC Cooperation Coordination Coexistence DSRSG DRO/DR EVAC FC HA HC HOM HOMC INTEL JLOC JMAC JMOC LO or LNO LOGBASE OPCON OPSEC PSO RC/HC Sect SOP SRSG Civil Affairs Civil-Military Cooperation Civil-Military Affairs Civil-Military Coordination Civil-Military Interaction Civil-Military Relations Working closely with military actors Ranges from cooperation to coexistence, information exchange between civilian and military actors at all times on-going Relationship reduced to information exchange Deputy Special Representative of the Secretary General Disaster Response Operation Evacuation Force Commander Humanitarian Assistance Humanitarian Coordinator Head of Mission Head of Military Component Intelligence Joint Logistic Operation Centre Joint Mission Analysis Cell Joint Military Operation Centre Liaison Officer Logistics Base Operational Control Operational Security Peace Support Operations Resident Coordinator/Humanitarian Coordinator Section Standard Operating Procedure Special Representative of the Secretary General UN Mission also black UN (Vehicles marked with black UN letters) see graph 4.1 UN OPCON UN Operational Control - authority to direct assigned units within the operational authority s limits, i.e. Security Council mandate, specified periods of time and mission area UN Integrated Mission Black and blue (humanitarians) UN via HC linked for UN synergy effect UNMO United Nations Military Observer
Attachment 2: UN Humanitarian Principles WFP CMC: Basic Operational Guidance
Attachment 3: Specialised Humanitarian and Military Staff Positions Specialised WFP CMC/ Humanitarian CMCoord Staff Positions UN OCHA Humanitarian Civil-Military Coordination Officers (UN CMCoord) WFP Civil-Military Coordination Military Liaison Officers (WFP CMC MLO 12 s) MLOs from other UN agencies specialized in Civil-Military Coordination matters UN Civil-Military Logistics Officers (CMLOG) Specialised CMCoord/CIMIC Military Staff Positions UN Civil-Military Coordination (UN-CIMIC) officers UN-CIMIC officers serve the UN mission as a whole. They provide the interface between the military component of a UN peace operation and the political, humanitarian, developmental, human rights, and rule-of-law components of the mission, as well as many other external partners in the larger peace-building system. UN Military Observers (UNMOs) Special teams of UN Military Observers (UNMOs), may be selected and tasked to establish communications, build relationships and create mutual understanding UN Civil-Military Liaison Officers (CMLOs) Special teams of UN Civil-Military Liaison Officers (UN CMLOs), may be selected and tasked to establish communications, build relationships and create mutual understanding UN Military Advisory Unit Officers (MAU) One of the tasks is to provide timely military advice to the civilian component of a UN Political mission Non United Nations European Union Military Staff Officers (EUMS): EUMS has been assisted by a civilian/military cell which, within the framework of the EUMS, performs such tasks as strategic planning in response to crises with a view to joint civilian/military operations. North Atlantic Treaty Organization Civil-Military Cooperation Officers (NATO CIMIC, serves the Military Commander) African Union Civil-Military Cooperation Officers (AU CIMIC) NATO Civil-Military Interaction Officers (NATO CMI) National CIMIC Unit Officers (CIMIC) Military Civil Affairs Unit Officers (CA) Civil affairs officers act as a liaison between the military and civilian authorities and populations. They support Civil-Military operations in support of conventional and special operations forces. 12 The use of the term Military Liaison Officer and its abbreviation MLO are still under discussion within the CMC Working Group.