Tempest Express -25
June 2014
MCDA Guidelines and
Country-specific
Civil-Military Guidelines
Viviana De Annuntiis
OCHA Regional Office for Asia and the Pacific
http://www.unocha.org
Learning Outcomes
DEFINE THE
PURPOSE OF THE
GLOBAL
UN-CMCOORD
GUIDELINES
IN COMPLEX
EMERGENCIES
HIGHLIGHT
THE KEY MESSAGES
OF THE IASC NON
BINDING GUIDELINES
FOR THE USE OF
ARMED ESCORTS
OCHA
EXPLAIN THE
APPLICABILITY
OF THE MCDA
GUIDELINES
COMPARE THE MCDA
GUIDELINES WITH THE
COUNTRY-SPECIFIC
GUIDANCE IN DRC
AND CAR
At the end
of the
session
participants
will….
Overview
GLOBAL
CIVIL-MILITARY
COORDINATION
GUIDELINES
COMPLEX EMERGENCIY
MCDA
Guidelines
IASC
Non-Binding
Guidelines
on the Use of
Armed Escorts
for Humanitarian
Convoys
(2013)
OCHA
DIFFERENCES IN
GLOBAL
CIVIL-MILITARY
COORDINATION
GUIDELINES
Civil-Military
Guidelines &
Reference for
Complex
Emergencies
Guidelines on the
use of Foreign
Military and Civil
Defence Assets in
Disaster Relief
(Oslo Guidelines)
COUNTRY
SPECIFIC
CIVIL-MILITARY
COORDINATION
GUIDELINES
Country –Specific
Guidelines
(Process and
Challenges)
Guidelines for
interaction between
MONUC military
and humanitarian
organizations (2006)
Position of the HCT on
the Interaction of the
Humanitarian
Community and the
Armed Forces present
in CAR
Part I – Global Civil-Military Coordination Guidelines
Civil-Military Guidelines & Reference for
Complex Emergencies
Complex Emergencies
Complex Emergencies
 Civil-Military Guidelines & Reference for
Complex Emergencies
 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)
Scope: Use Of Military
And Civil Defence
Assets In Complex
Emergencies
6
COMPLEX EMERGENCY
“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 ongoing UN country
programme” (IASC)
MCDA Guidelines- Historical Background
Late 90s: Humanitarian
emergencies (Kosovo, East Timor,
Sierra Leone, and Ethiopia/Eritrea);
need for the development of new
guidelines focusing on the complex
emergency environment
March 2003: First version released
26 June 2003: Launched in
Brussels
January 2006: Updated version
(Revision 1)
8
The MCDA Guidelines - outline
Part 1: Principles and Concepts
•
Core Principles
•
Key concepts for Use of MCDA resources
•
Avoiding Reliance on Military Resources
•
When to use Military and Civil Defence
Resources to Support Humanitarian Activities;
•
Operational Standards for the Use of UNMCDA
•
Operational Standards for the Use of Other
Deployed Forces
•
UN-CMCoord in Complex Emergencies
UN-CMCoord Cell, Mali, 2013 – Credit: Sophie Solomon
Part 2: Tasks and Responsibilities
•
Affected State and Transit States
•
HC/RC
•
UN Humanitarian Agencies
•
OCHA
•
Assisting State and Foreign Military or Civil
Defence Commanders.
Central African Republic, 2013 – Credit: Sergio Da Silva
9
Key principles:
• Humanitarian assistance must be
provided in accordance with the
principles of humanity, neutrality
and impartiality.
• The United Nations seeks to
provide humanitarian assistance
with full respect for the sovereignty
of States.
• As a matter of principle, the
military and civil defence assets of
belligerent forces or of units that
find themselves actively engaged
in combat shall not be used to
support humanitarian activities.
10
Credit: WFP/Simon Crittle
KEY PRINCIPLES
 Last Resort
 Humanitarian operation retains its
civilian nature and character
 Use of MCDA should focus on
indirect assistance and infrastructure
support missions
 Use of MCDA limited in time and scale
 Avoid becoming dependent on
military resources
Decision-makers must weigh the risk to
relief workers and their ability to
operate effectively at the moment, and
in the future, against the immediacy of
the needs of the affected population
and the need for the use of military and
civil defence assets.
12
Summary
Scope of Use:
Complex Emergencies
Key questions to help guide the decision to
use MCDA:
Are they the option of last resort, indispensable and
appropriate?
Are the countries offering MCDA also parties to the
conflict?
Based on the need, is a military or civil defence unit
capable of the task?
How long will they be needed?
Can they be deployed without weapons or additional
security forces?
How will this association impact the security of UN
personnel and other humanitarian workers?
How will this impact the perceptions of UN neutrality
and/or impartiality?
2010 Haiti, Cholera outbreak – Credit: UNICEF, M. Dormino
What control and coordination arrangements are
necessary?
How and when will transition back to civilian responsibility
be achieved?
What are the consequences for the beneficiaries, other
humanitarian actors, and humanitarian operations in the
mid to long term?
13
Part II – Global Civil-Military Coordination Guidelines
Civil-Military Guidelines & Reference for
Complex Emergencies
vs
Guidelines on the use of Foreign Military
and Civil Defence Assets (MCDA) in Disaster
Relief
Key UN-CMCoord Guidelines
Guidelines on the use of Foreign
Military and Civil Defence Assets
(MCDA) in Disaster Relief
(The Oslo Guidelines)
Guidelines on the Use of MCDA to
support United Nations Humanitarian
Activities in Complex Emergencies
(MCDA Guidelines)
Scope of use:
- Natural, technological and environmental
disaster (peacetime)
Scope of use:
- Complex emergencies
Key concepts:
- Last resort (complementarity)
- At no cost
- Consent of the Affected State
- Avoid dependence on MCDA
- Perception
- Critical areas for coordination
Key concepts:
- Last resort - At no cost
- Consent of the Affected State
- Avoid dependence on MCDA
- Perception - Time-limited
- Smooth transition
- Parties to conflict: no involvement
- Hierarchy of tasks
- Minimum amount of liaison required
- Requirement for the sharing of information
Key principles (common to both sets of guidelines):
- Humanitarian principles / Humanitarian imperative
Hierarchy of Humanitarian Tasks Performed
Direct Assistance:
Face-to face distribution of goods and
services - handing out relief goods, providing
first aid, transporting people, interviewing
refugees, locating families etc.
Indirect Assistance:
At least one step removed from the
population - transporting relief goods, building
camps and shelters, providing water sources,
clearing mines and ordinance, etc.
Infrastructure Support:
General services that facilitate relief, but are
not necessarily visible to, or solely for, the
benefit of the affected population - repairing
infrastructure, operating airfields, providing
weather info, ensuring access to
communications networks, etc.
16
Appropriate Relief Tasks of Military Actors
- based on missions
Availability and impartiality of forces decreases
Mission of
Military
Peaceful
Peace & Security
Activities
Peacekeeping
Humanitarian Tasks
Peace
Enforcement
Combat
Direct
Indirect
Infrastructure
Support
Visibility of task decreases
17
UN-CMCOORD SPECTRUM OF STRATEGIES
Coordination
Cooperation
Planning
Task Division
Information Sharing
Co-existence
Information Sharing
Task Division
Planning
Questions?
Updated Guidelines
on the Use of Armed Escorts
for Humanitarian Convoys
IASC Non-Binding
Guidelines (2013)
GENERAL RULE
Humanitarian Convoys
will not use armed
escorts
CONSEQUENCES OF USING ARMED ESCORTS
Undermine position of neutrality, impartiality
and independence
Armed escort may become a target
Armed escort capacity to respond
Pressure others to use armed escorts
Create dependence
Cooperation with one armed actor could reduce
Humanitarian space
ALTERNATIVES TO THE USE OF ARMED ESCORTS
 Cultivate greater acceptance
 Humanitarian negotiations
(incl. access arrangements)
 Remote management/programming
 Low profile approach
 Area security
 Innovative program design and
monitoring
 Suspend or cease operationsn
CRITERIA FOR THE EXCEPTIONAL
USE OF ARMED ESCORTS
As a last resort, in exceptional
circumstances and when key criteria are
fulfilled, the United Nations Designated
Official for Security will decide on the use
of armed escorts for humanitarian convoys
1. Humanitarian Need & Programme
Criticality
2. Responsible Authorities
3. Safety & Security
4. Sustainability
Guiding Principles
1. Primacy of humanitarian
criteria
2. Humanitarian Identity
3. Primacy of humanitarian
organisation in humanitarian
work
Part III
Country Specific Civil-Military Coordination
Guidelines: Process and Challenges
Why UN-CMCoord HCT Position Papers &
Country-Specific Guidance?
• Lack of common position and country-specific guidance prior to an
emergency may delayed decisions on use of MCDA.
• Existing country-specific guidance contributes to successful civilmilitary interface and decision-making by HCT.
Do’s – Best Practices
 Plan
sufficient time to consult with all key stakeholders, both
through a task force and in bilateral meetings with actors that may not
(want or be able to) be part of the task force.
 Ensure
engagement and buy-in from the DSRSG/RC/HC and HCT
from the start of the process and enlist HCT members or their
representatives in the guidelines’ drafting task force.
 Endorsement
of the guidelines following an engaging and
participatory process will facilitate acceptance of and adherence to the
non-binding guidelines.
 Ensure that there will be dedicated commitment and sustained
involvement of the task force members throughout the process.
Challenges

Definition of the operating environment.

Definition of Last Resort.

Use of Armed and Military Escorts.

Developing guidelines with humanitarians, mission
personnel, military and police forces  common
ground vis-à-vis differences.

DSRSG/RC/HC in Integrated Missions.

Blurring of lines.
Guidelines for interaction between
MONUC military and humanitarian
organizations (2006)
Aim of the Guidelines
Aim: Improving the interaction
between the MONUC peacekeeping
force (MONUC military) and the
humanitarian organizations.
Developed by the MONUC CIMIC Unit,
OCHA and MONUC HAS, with the
contribution of the UN Country team
in the DRC, other civil components of
MONUC, in-country humanitarian
donors and INGOs
Part A
GENERAL PRINCIPLES AND DEFINITIONS
Part B
OPERATIONAL GUIDELINES
Guidelines - outline
Part A: General Principles and
Definitions
1. MONUC military and humanitarian
actor’s mandates
2. Principle of cooperation
3. Principle of distinction
4. Definition of key terms
5. Principles of humanitarian action
6. Principles of CIMIC operations
7. Roles of OCHA, MONUC HAS and
MONUC CIMIC
6. Use by humanitarians of military assets
Part B: Tasks and Responsibilities
7. Use by humanitarians and MONUC
military of MONUC civilian asset
1. Liaison arrangements, lines of
communication
2. Coordination
3. Type of information to be exchanged
4. Security of humanitarian personnel
8. Humanitarian operations carried out by
MONUC military
9. Training
10. DDR process and reintegration programs
for former combatants
11. Implementation of the Guidelines
33
PRINCIPLE OF COOPERATION
Cooperation between MONUC military and
humanitarian actors is made necessary by the close
inter-relation of the respective actors’ role in
protection and assistance activities
in protecting and assisting the civilian
population, military and humanitarian actors
represent different facets of the overall
endeavor
PRINCIPLE OF DISTINCTION
There should always be a clear distinction
between peacekeeping military and humanitarian actors.
The principle of cooperation between MONUC military and
humanitarian actors must therefore be limited by
the principle of distinction.
OPERATIONAL GUIDELINES
Liaison arrangements
Range of Interfaces for HumanitarianMilitary Liaison
Range/Continuum of Strategies of Approaches
Cooperation
Co-existence
The UN-CMCoord function facilitates the establishment and maintenance of all possible interfaces
Co-location
Liaison
Exchange
(secondment)
Liaison
visits
Hum
Hum
Liaison
Officer
Limited
Liaison
Conduit or
interlocutor
Hum
Hum
Hum
Liaison
Officer
Liaison
Officer
Mil
Liaison
Officer
Mil
Liaison
Officer
Hum
Liaison
Officer
Mil
Mil
Mil
37
Information Sharing
 Humanitarian locations:
coordinates of humanitarian
facilities, especially if they are
included in a possible military
operating theatre.
 Humanitarian activities:
plans of action, routes and timing of
humanitarian convoys and airlifts, in
order to coordinate planned
operations and avoid accidental
strikes on humanitarian convoys
 Mine-action activities
 Security information
 Population movements
 Post-strike information
 Customs and airport clearances
3
Information Sharing
•
MONUC military might not share
some confidential information relating
to certain military operations.
Humanitarian agencies and organizations
might not share:
• Information of a nature to compromise
their independence, neutrality,
impartiality or their security in the field;
• Information relating to some victims or
individuals assisted or protected, when
they deem that transmitting such
information might be detrimental to the
security of these victims.
1
SECURITY OF HUMANITARIAN PERSONNEL
The use of military/armed protection for humanitarian premises or
personnel is an extreme precautionary measure that should be
taken only in exceptional circumstances, on a case-by-case
basis and on request of the agency/organization.
This should be a last resort option when other staff security
mechanisms are unavailable, inadequate or inappropriate.
USE BY HUMANITARIANS
OF MILITARY ASSETS
Military assets must be used in accordance
with the guidelines on “The Use of Military
and Civil Defense Assets to Support UN
Humanitarian Activities in Complex
Emergencies” issued in March 2003
(MCDA Guidelines)
Hierarchy of Humanitarian Tasks Performed
Direct Assistance:
Face-to face distribution of goods and services handing out relief goods, providing first aid,
transporting people, interviewing refugees,
locating families etc.
Indirect Assistance:
At least one step removed from the population transporting relief goods, building camps and
shelters, providing water sources, clearing mines
and ordinance, etc.
Infrastructure Support:
General services that facilitate relief, but are not
necessarily visible to, or solely for, the benefit of
the affected population - repairing infrastructure,
operating airfields, providing weather info,
ensuring access to communications networks, etc.
42
HUMANITARIAN OPERATIONS
BY MONUC MILITARY
WHAM
 They should in principle not be activities of direct relief or assistance,
but rather be activities of indirect relief such as rehabilitation of
infrastructure;
 They should not be undertaken in situations where there are ongoing
hostilities with one or more factions;
 When planning and implementing WHAMS, it is recommended that
these activities be coordinated by the MONUC military with the
humanitarian organizations present in the area.
HUMANITARIAN OPERATIONS
BY MONUC MILITARY - Direct Assistance
 Only in exceptional circumstances and as a last resort measure;
 No comparable civilian alternative to the military activities (MONUC
military are the only actors on the ground or the humanitarians lack
the capacity and/or resources to respond to critical and life
threatening needs of the civilian population);
 Operations necessary to meet urgent and critical needs of the civilian
population;
 The planning and implementation of these operations should take
place in close coordination with OCHA and HAS.
Position of the Humanitarian Country Team (HCT)
on the Interaction of the Humanitarian Community
and the Armed Forces present in
the Central African Republic
HCT Position Paper
 Strategy of cooperation in the areas of security and protection of
civilians (common objectives but different approaches and means).
 Military involvement in humanitarian forums/ clusters is not
desirable to maintain a clear distinction between humanitarian
actors and military activities.
 Civil-Military Coordination framework in place to facilitate dialogue
and interaction necessary to promote humanitarian principles and
discuss key issues related to access and protection of civilians.
HCT Position Paper
 Distinction between military and humanitarian actors and activities is essential and
necessary.
 Humanitarian teams cannot carry equipment/ military personnel and this cannot be
imposed by the armed forces.
 Humanitarian workers must never present themselves or present their work as part
of a military operation; military should refrain from presenting themselves as aid
workers or claim to provide humanitarian assistance.
HCT Position Paper
 The use of armed or military escorts for humanitarian actors is to be discussed on
a case by case basis for each area;
 Alternative strategies in place to ensure the safety and security of humanitarian
convoys must be preferred;
 The use of armed escorts by one humanitarian actor could affect the perception of
neutrality of all humanitarian actors and compromise the independence of
humanitarian operations while endangering aid workers and affected populations.
HCT Position Paper
 Evacuation of civilians under direct threat might
require armed escorts; this should be coordinated
within the HCT and approved by the Humanitarian
Coordinator.
 The decision to request/accept the use of military or
armed escorts cannot be imposed by the military
and/or political authorities.
 The use of armed escorts cannot be taken
unilaterally; it must be the result of a transparent
decision-making and collaborative process within
the HCT.
 Humanitarian agencies conduct independent
humanitarian assessments to determine the nature
and extent of needs and must be able to access all
vulnerable populations in all regions affected by the
emergency.
 MISCA and Sangaris are mandated to contribute to
the PoC and the creation of an enabling
environment for the delivery of humanitarian
assistance to people in need (SCR 2177).
Learning Outcomes
DEFINE THE PURPOSE
OF THE GLOBAL
UN-CMCOORD
GUIDELINES
IN COMPLEX
EMERGENCIES
HIGHLIGHT
THE KEY MESSAGES
OF THE IASC NON BINDING
GUIDELINES FOR THE USE OF
ARMED ESCORTS
OCHA
EXPLAIN THE
APPLICABILITY
OF THE MCDA
GUIDELINES
COMPARE THE MCDA
GUIDELINES WITH
COUNTRY-SPECIFIC
GUIDANCE IN DRC
AND CAR
At the end
of the
session
participants
will….