Civil-military Coordination in the Common Security and ... - ETC Graz

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Civil-military Coordination in the Common Security and Defence Policy of the European Union that these structures coordinate their activities for the planning and conduct of CSDP missions and operations. The most important decision to further CMCO on the institutional level taken so far was made in 2009. The civilian and defence directorates, formerly separate entities in the Council Secretariat, were merged with parts of the Civil-Military Cell to form a new Crisis Management and Planning Directorate (CMPD). It is essential to note that the CMPD may work closely with the CPCC and the military EU Operations Centre as well as other military and civilian structures of the EU. Therefore, this directorate today is a structure composed of civilian and military personnel tasked with the strategic planning of CSDP operations and truly bridging civilian and military structures. It may, however, be questioned to what extent this institutional coordination has an impact on the field level, where so far no common civil-military structures exist. D The Implications of CMCO for Civilian and Military Capabilities CMCO is a complex process that also has implications for the development and training of civilian and military capabilities. Since the EU has no own assets to deploy, the MS make some of their civilian and military capabilities available for EU crisis management operations. In so-called headline goals, the MS have agreed on the numbers of civil and military capabilities they are ready to contribute to EU operations and missions. For our analysis of CMCO, in the CSDP it is of particular importance that the process of capability-development was made on two separate tracks so far – a civilian 21 and a military 22 one. Both headline goals were to be reached by 2010 and reviews of the member states’ contributions show that there are still gaps in qualitative and quantitative terms. While there are some first plans on how the capability development process shall continue in the future, 23 some argue that instead of two separate headline goals, integrated scenarios and the experience from civil-military operations should guide the further development of a joint civil-military headline goal, because this would better reflect the capabilities needed on the ground. 24 21 Civilian Headline Goal 2010, approved by the ministerial Civilian Capabilities Improvement Conference and noted by the General Affairs and External Relations Council on 19 November 2007. 22 Headline Goal 2010, approved by General Affairs and External Relations Council on 17 May 2004 endorsed by the European Council of 17 and 18 June 2004. 23 Council of the European Union, EU civilian and military capability development beyond 2010, Doc. 17127/10, Brussels, 7 December 2010. 24 Claudia Major/Christian Mölling, EU military capabilities. Some European troops, but not yet an army. In Ettore Greco; Pirozzi, Nicoletta and Silvestri, Stefano (eds.): EU crisis management. Institutions and capabilities in the making, Rome, 2010, 23. 35
Markus MÖSTL CMCO also concerns the proper training of civil and military capabilities. Some training concepts of MS already address the issue of joint civil-military training. The Swedish Folke Bernadotte Academy, for instance, identified manifold interfaces relevant for civil-military training. These include public order, organized crime, border control, disarmament, demobilization and reintegration, civil protection, elections, intelligence, security provision for humanitarian actors, transport and telecommunications. Further areas would include human trafficking, witness protection or security sector reform. 25 Although the EU training concept for CSDP only briefly mentions CMCO, 26 there seems to be a wide overall agreement that joint trainings are one of the most important means to develop a common understanding for civil-military operations and may be a prime means to establish the aspired “culture of coordination”. Yet, the responsibility for the training of staff still rests with the MS, and in practice there is no obligation for the MS to conduct joint trainings for civilian and military staff. Further improvements for CMCO in terms of capabilities are still in progress. In December 2010, the European Council emphasized the potential of civil-military synergies in capability development and particularly highlighted the added value of dual use capabilities in this regard. 27 Currently, more concrete actions are being identified on European level that should bring more tangible results in this area. 28 E Practical Examples of CMCO in the CSDP While a lot of attention has been paid to the military branch of the CSDP during its first years, it would be inaccurate to regard its military branch as the most important aspect of EU crisis management in practice. 29 In fact, most of the CSDP missions were civilian in nature, or had a significant civilian component. Looking at the operational practice of the CSDP reveals that the EU conducts numerous civilmilitary operations or has civilian and military operations ongoing in a single theatre of operation. 30 The question remains, however, to what extent these engagements are successful in terms of coordination. 25 Renata Dwan, Civilian tasks and capabilities in EU operations. In: Marlies Glasius/Marlies and Mary Kaldor (eds.), A Human Security doctrine for Europe. Project, principles, practicalities, New York, Routledge, 2006, 279. 26 Council of the European Union, Draft EU Training Concept in ESDP, Doc. 11970/04, Brussels, 30 August 2004, 9. 27 Council of the European Union, Council conclusions on military capability development, 3055th Foreign Affairs (Defence) Council meeting, Brussels, 9 December 2010, para. 9. 28 Council of the European Union, Promoting Synergies between the EU Civil and Military Capability Development – Way ahead, Doc. 17285/10, Brussels, 6 December 2010. 29 Jolyon Howorth, Security and defence policy in the European Union. New York, Palgrave Macmillan, 2007, 93. 30 For an overview of the CSDP missions and operations see the CSDP website at http://consilium.europa.eu/showPage.aspx?id=268&lang=en. Prime examples are the 36
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