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Conflict Prevention and Crisis Management
Civilian Crisis Management
European Views on the Nuts and Bolts of
Building a Better Peace
Dr. Andrea de Guttry, director of the International
Training Program for Conflict Management
(brief biography)
Washington, D.C., October 30, 2001
Relevant EU Legal Texts in
the Field of Civilian Aspects of Crisis Management
TREATY ON EUROPEAN UNION (AMSTERDAM), ARTICLES 11-27
TREATY OF NICE, AMENDING THE AMSTERDAM TREATY, ART. 17
Council regulation 975/1999 laying down the requirements
for the implementation of development cooperation operations
which contribute to the general objective of developing and
consolidating democracy and the rule of law and that of respect
of human rights and fundamental freedoms
Council regulation 976/1999 laying down the requirements
for the implementation of community operations, other than
those of development cooperation, which, within the framework
of community cooperation policy, contribute to the general
objective of developing and consolidating democracy and the
rule of law and that of respect of human rights and fundamental
freedoms
2000/354/CSFP: Council decision setting up a committee for
civilian aspects of crisis management
2001/78/CSFP: Council decision setting up the political and
security committee
Council regulation 381/2001 creating a rapid-reaction mechanism
Other Relevant EU Documents
-
Helsinki European Council, 10 and 11
December 1999, Presidency Conclusions
-
Lisbon European Council, 23 and 24 March
2000, Presidency Conclusion
-
Santa Maria da Feira European Council,
19 and 20 June 2000, Presidency Conclusion
-Study on Concrete Targets on Civilian Aspects
of Crisis
Management
-Concrete Targets for Police
-Police Action Plan
-Contributions of Non-EU States to EU Police Missions
on Civilian Crisis Management
-New Concrete Targets for Civilian Aspects of Crisis
Management
-EU Exercise Policy
-EU Cooperation with International Organizations on
Civilian Aspects of Crisis Management
-
Communication from the Commission on
Conflict Prevention (11 April 2001)
-
European Commission, Concept Paper for
a European Community Project on Training for Civilian
Aspects of Crisis Management (September 2001)
The Contribution of the EU
Concerning Conflict Prevention, Management and Resolution
on Other Continents
-
The EU and the issue of conflicts in Africa:
peace-building, conflict prevention and beyond, communication
from the commission to the council of March 6, 1996
-
Council common position of June 2, 1997,
concerning conflict prevention and resolution in Africa
-
Council common position of May 25, 1998
on human rights, democratic principles, the rule of law
and good governance in Africa
-
Conclusions of the Development Council on
November 30, 1998, "The Role of Development Cooperation
in Strengthening Peace-Building, Conflict Prevention and
Resolution"
-
Council common position of May 14, 2001
concerning conflict prevention, management and resolution
in Africa
EU Institutional Structures Involved in
Dealing with Civilian Aspects of Crisis Management
-
The European Council (Heads of States and Governments)
-
The Council of the European Union (Ministers for Foreign
Affairs)
-
The Presidency and the Troika (Presidency,
High Representative of of the CSFP and next Presidency,
the commission being fully associated)
-
CSFP and next Presidency, the commission being fully
associated)
-
The High representative for the CFSP/Secretary-General
of the Council
-
The Permanent Representatives Committee
-
The Political Committee (Political Directors
of EU member States
and Commission)
-
The Planning and Early Warning Unit (Now called UNIT)
-
The Situation Room
-
The Political and Security Committee
-
The Committee for Civilian Aspects of Crisis Management
-
The European Parliament
-
EU Member States
-
The European Commission
-
The European Community Humanitarian Office (ECHO)
The EU Decision-Making Mechanism
in the Field of Civilian Aspects of Crisis management
The Political and Security Committee has a central
role to play in the definition of and follow up to the EU's
response to a crisis.
(Annex to Council decision 2001/78/CSFP)
1. Information Collection
In particular the PSC will:
-
Keep track of the international situation
in the areas falling within the Common Foreign and Security
Policy, help define policies by drawing up "opinions"
for the Council, either at the request of the Council
or on its own initiative, and monitor implementation of
agreed policies.
-
Provide guidelines for other Committees
on matters falling within the CFSP.
-
Maintain a privileged link with the Secretary-General/High
Representative (SG/HR) and the special representatives.
-
Send guidelines to the Military Committee.
-
Receive the opinions and recommendations
of the Military Committee.
-
Receive information, recommendations and
opinions from the Committee for Civilian Aspects of Crisis
Management and send it guidelines on matters falling within
the CFSP.
-
Under the auspicies of the Council, take
responsibility for the political direction of the development
of military capabilities, taking into account the type
of crisis to which the Union wishes to respond. As part
of the development of military capabilities, the PSC will
receive the opinion of the Military Committee assisted
by the European Military staff.
2. In the Event of a Crisis
-
In the event of a crisis the PSC is the
Council body which deals with crisis situations and examines
all the options that might be considered as the Union's
response within the single institutional framework and
without prejudice to the decision-making implementation
procedures laid down by the Treaties, to take legally-binding
decisions. The Commission exercises its responsibility,
including its power of initiative under the treaties.
-
The role of the Foreign Relations Counsellors
is to maintain the effective permanent coordination between
CFSP discussions and those conducted in other pillars.
-
To prepare the EU's response to a crisis,
it is for the PSC to propose to the Council the political
objectives to be pursued by the Union and to recommend
a cohesive set of options aimed at contributing to the
settlement of the crisis. In particular it may draw up
an opinion recommending to the Council that it adopt a
joint action. Without prejudice to the role of the Commission,
it supervises the implementation of the measures it has
adopted or is envisaging. The member States inform the
PSC of the measures they have adopted or are envisaging
at the national level.
3. The Exercise of the Political Control
of the EU Action
-
The PSC Exercises "political control and
strategic direction" of the EU's military response to
a crisis. To that end, on the basis of the options and
the recommendations of the Military Committee, it evaluates
in particular the essential elements (strategic military
options including the chain of command, operation concept,
operation plan) to be submitted to the Council.
-
The PSC plays a major role in enhancing
consultations, in particular with NATO and the third States
involved.
4. The Role of the Situation Centers
5. The Role of the Council
-
With a view to launching an operation the
PSC sends the Council a recommendation based on the opinions
of the Military Committee in accordance with the usual
Council preparation procedures. On that basis the Council
decides whether to launch the operation within the framework
of a joint action.
-
The joint action will determine, in particular,
the role of the Secretary General/ High Representative
in the implementation of the measures falling with the
"political control and strategic direction" exercised
by the PSC. For such measures the Secretary General/high
Representative acts with the PSC's assent.
-
During the operation, the Council will be
kept informed through PSC reports presented by the Secretary-General/High
Representative in his capacity as Chairman of the PSC.
The Voting Mechanism
within the EU Decision-Making Mechanism in the Field of Crisis
Management
-
Unanimity as a general rule
-
Constructive abstention
-
Qualified majority (for the adoption of
joint action or common positions)
-
Veto rights for each member state
Human Resources for Civilian
Aspects of Crisis Management
-
The growing importance of the role played
by the civilian component of peace-support operations.
-
Which professional skills are needed in
an international peace-support operation?
-
How to Guarantee the existence of a pool
of well trained civilian experts ready to be deployed
at short notice?
-
What might be common standards and modules
for training of the different professional personnel?
-
The different training phases
-
Advance of mission
-
Pre-deployment
-
On the Job
-
Post-mission debriefing
-
Needs sound analysis
-
Training methodology
-
Content
-
Quality of lectures
-
Who should provide the training: training
institutions v. recruiting agencies?
-
The financial costs of a quality training program.
-
The proposal of the European Commission
concerning the training for civilian aspects of crisis
management.
-
A comparative analysis: what is happening
within the U.N. and the OSCE in the field of training
civilian personnel?
Concrete Targets for
Civilian Aspects of Crisis Management (as decided in Göteborg,
June 2001)
RULE OF LAW
-
In any given mission, Rapid build-up of
local capacity and subsequent handover to local ownership
is essential.
-
There is a clear need for continuity between
short-term crisis management assistance and long-term
initiative: the EU will make use of all community instruments.
-
A sufficiently large pool of member states'
officials and experts in this field should be created.
-
Complementarities between member states'
relative expertise and strengths could allow for specialization.
-
Member states should, on a voluntary basis,
by 2003 be able to contribute up to 200 officials adequately
prepared for crisis management operations in the field
of the rule of law.
-
Capability to supplement police rapid deployment
unit and fact finding mission with officials having broad
knowledge.
-
Develop a comprehensive range of agreed
standards for selection, training and equipment of officials
and experts in the field of rule of law.
-
Establishment of common training programs
should be envisaged.
-
The EU should promote the drafting of clear
mandates in international mission involving official and
experts in the field of the rule of law
Civilian Administration
-
To establish a pool of experts able on a
voluntary basis to take on assignments with civilian administration.
-
The pool of experts should cover a broad
spectrum of function relevant for crisis management operations
and be capable of deployment within a short time frame.
-
General administrative function: civil registration,
registration of property, election/appointments to political
bodies, taxation, local administration, custom services.
-
Social function: education, social services,
health and medical services.
-
Infrastructure functions: water supply,
energy supply, telecommunications, permanent infrastructure,
transport, waste management.
-
The ability to rapidly deploy qualified
administrative experts to international mission depends,
to a large extent, on preventive training.
-
EU undertakes to develop appropriate common
standards and modules for training in this field.
Civil Protection
-
Two to three assessment and/or coordination
teams composed of 10 experts that could be dispatched
within 3-7 hours.
-
Civilian protection teams consisting of
up to 200 person available at very short notice.
Cooperation with Armed Forces and Use
of Military Resources
-
Basic comprehensive training and refresher
training at EU level for experts selected for assessment
and coordination of teams.
-
Training in accordance with agreed requirements
carried out under the responsibility of member states.
-
A system of exercises.
EU Instruments
for Conflict Prevention and Crisis Management
1. Political Instruments: CFSP dimension
2. Military Crisis Management: CFSDP
dimension
3. EC Instruments for Civilian Crisis Management
and Conflict Prevention
Between crisis management and short term
prevention (light or direct prevention)
-Crisis Management instrument: mandate in the
EC regulation
-Short term conflict prevention (Commission's vision
about the principle of mainstreaming conflict prevention in
all
EC instruments)
-Linking relief, rehabilitation and development:
linkage to the
long-term prevention
-Reaction in case of EU conditionality (i.e.
human rights and
democratic principle violations)
-Implementation of U.N. sanctions
Long-term prevention (deep or structural
prevention)
-Principle of the "structural stability" (targeting
root causes of
conflict)
-Cotonou agreement with ACP countries: a legal framework for
a comprehensive conflict preventive policy
-
Specific provisions on conflict prevention
and resolution
-
Conditionality for human rights, democratic
principles, rule of law and good governance
-Partnership with U.N., financial institutions
and regional
organizations
-Disarmament, demobilization and reintegration of
ex-combatant program: CFSP dimension
-Institution building
-Macro-economic and micro-economic (reconstruction)
-Civil society through NGOs and local association
-Promotion of human rights, democratic principles,
strengthening of rule of law and good governance
-Ex.: MEDA II and CARDS regulations, new policy of
PHARE and TACIS
-Institutionalized political dialogue
-Clause of the "essential element" (conditionality of human
rights, democratic principle, rule of law conditionality)
-Commercial preferences and perspective of free trade areas
or membership
-Some ex.: European agreements (candidate countries),
stabilization and association agreements (Western
Balkans), partnership and co-operation agreements (NIS
and Mongolia), association agreements with Mediterranean
countries
-General system of preferences and conditionality
-Unilateral preferences (i.e. preferences to Western
Balkans)
-The principle of "everything but arms": special provision
for
the relation with LDCs
4. International Co-operation:
Small arms and light weapons control (ex.
U.N. Conference, Code of Conduct on Arms Export)
Action against anti-personnel land-mines:
-
Proposal of EC regulation
-
U.N.-EU and OSCE-EU co-operation
-
High political level co-operation: new framework
for U.N.-regional organizations contacts
-
International early warning system: common
indicators, exchange of information, communication, common
training standards
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