Information and Awareness Seminar on West African Civilian

Capacities

December 8-10, 2011

Bamako (Mali)

Event Report

Seminar organized by the Peace Operations Network (ROP), the Pearson Peacekeeping Center (PPC) and the Alioune

Blondin Beye Peacekeeping School of Bamako (EMP)

With financial support from the Canadian Department of Foreign Affairs and International Trade (DFAIT)

Report written by Etienne Tremblay-Champagne

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Information and Awareness Seminar

on West African Civilian

Capacities

December 8-10, 2011 Bamako (Mali)

Event Report

Created in 2005, the Peace Operations Network (ROP) has become an essential reference for peace operations. Affiliated with the Centre for International Studies at the University of Montreal (CERIUM), ROP has the double mission of shedding as much light as possible on peace operations and works to reinforce capacity for peace operations.

The Pearson Peacekeeping Centre was established in 1994 by the Government of Canada to support international peace and security. It is dedicated to improving the effectiveness of peace operations around the world through capacity building programs, training and education activities, as well as military exercises and simulations.

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Summary

1. CONTEXT ......................................................................................................................................... 1

2. OVERVIEW AND OBSERVATIONS .......................................................................................................... 3

2.1 THE INCREASING ROLE OF CIVILIANS IN PEACE OPERATIONS. ............................................................................... 3

2.2 THE DEVELOPMENT OF THE CIVILIAN DIMENSION OF THE ASF ............................................................................. 4

2.2.1 The civilian dimension of the ASF .................................................................................................. 4

2.2.2 An uneven development ............................................................................................................... 4

2.3 CIVILIAN CAPABILITIES OF THE ESF: OVERVIEW ................................................................................................ 5

2.3.1 A late development ....................................................................................................................... 5

2.3.2. A PLANELM in the making ........................................................................................................... 6

2.3.3. The importance of recruitment and training ............................................................................... 7

2.4. AN UNDER-NOTICED INSTITUTIONALIZATION .................................................................................................. 8

2.5. THE CENTRAL ROLE OF STATES ..................................................................................................................... 8

2.6. THE IMPORTANCE OF PARTNERSHIPS ............................................................................................................ 8

3. GENERAL RECOMMENDATIONS ....................................................................................................... 9

3.1 CONTINUING MOBILIZATION, ESPECIALLY AMONG THE STATES ............................................................................ 9

3.2 FURTHERING REFLECTION ON THE CONCEPT OF CIVILIAN MISSIONS AND POSITIONS ................................................. 9

3.3 IMPROVING THE DEFINITION OF PRIORITY NEEDS ............................................................................................ 10

3.4 INVENTORY AND MAP OF THE CIVILIAN EXPERTISE (PUBLIC SERVANTS, CIVIL SOCIETY AND PRIVATE SECTOR) ................ 10

3.5 IMPROVE COMMUNICATION AND COORDINATION BETWEEN THE ACTORS INVOLVED .............................................. 11

3.6 INCREASE PARTNERSHIPS, INCLUDING SOUTH-SOUTH AND TRIANGULAR ONES ..................................................... 11

4. SPECIFIC RECOMMENDATIONS .......................................................................................................... 12

4.1 RECOMMENDATIONS FOR THE UN .............................................................................................................. 12

4.2 RECOMMENDATIONS FOR THE AU .............................................................................................................. 13

4.3 RECOMMENDATIONS FOR ECOWAS .......................................................................................................... 14

4.4 RECOMMENDATIONS FOR WEST AFRICAN STATES ......................................................................................... 15

APPENDIX 1: COURSE OF THE ACTIVITY.................................................................................................. 16

APPENDIX 2: LIST OF PARTICIPANTS....................................................................................................... 21

APPENDIX 3: CIVILIAN FUNCTIONS DEFINED BY THE KAMPALA WORKSHOP .......................................... 23

APPENDIX 4: POSSIBLE TYPES OF RECRUITMENT FOR THE ESF ............................................................... 24

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1. Context

The Peace Operations Network (ROP), the Pearson Peacekeeping Center (PPC) and the Alioune Blondin Beye Bamako Peacekeeping School (EMP) organized an information and awareness seminar on West African civilian capacities in Bamako, Mali, December 8-10, 2011. This seminar was made possible by the financial support of the Canadian Department of Foreign Affairs and International Trade (DFAIT), as part of a project to reinforce the capacities of Francophone countries in peace operations.

The seminar was an opportunity to take stock and analyze a series of initiatives and developments in global civilian capacities, including the presentation to the UN General Assembly of the report from the Senior Advisory Group for the Review of International Civilian Capacities and the adoption of the third Roadmap of the African Standby Force (ASF). The activity was held at a crucial time for the Economic Community of West African States (ECOWAS), which must implement the planning elements of the civilian component of the standby force of ECOWAS (ESF).

This information and awareness seminar on West African civilian capacities took place as peace operations are becoming an increasingly multidimensional tool, supported by a number of civilian functions including, inter alia: political affairs; public information; planning and coordination; human rights; humanitarian assistance; rule of law; disarmament, demobilization and reintegration (DDR); electoral matters; child protection and gender issues and, of course, the administrative support functions. Also, the African Union (AU) has recommended to each Regional Economic Community (REC) that it accelerate the implementation of the civilian component of its regional brigade under the Protocol establishing the ASF.

The seminar, which aimed to create an inter-regional and continental dialogue, brought together some fifty participants and speakers from eight West African countries (Benin, Burkina Faso, Ghana, Mali, Niger, Nigeria, Senegal, Togo), as well as several officials from the UN, from three Regional Economic Communities (ECCAS, EAC, SADC), from AMISOM and from all three ECOWAS Centers of Excellence (EMP, KAIPTC and NDC).

The objective of the seminar was threefold:

- To inform and raise awareness among West African States regarding civilian capacities and their place within the African Standby Force (ASF) by favoring the views of external partners, such as the UN, the AU, the RECs and the Centers of Excellence.

- To exchange on the operation of civilian components in peace operations and on their relations with other components (military and police).

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- To mobilize States in the development of West African civilian capacities, either by creating a network of focal points or by developing the civilian component of the West African Standby Force.

The current paradigm in peace operations being firmly anchored in multidimensionality, the West African States were represented in the seminar by individuals occupying leadership positions in the military, police and diplomatic corps and whose duties are related to the development and management of the civilian dimension in peace operations. This exchange of views between these individuals took place, in French and in English, under the Chatham House Rule, in order to promote exchanges and discussions among participants and speakers.

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2. Overview and observations

The three-day seminar enabled participants to discuss a number of issues related to the need for civilian capabilities in peacekeeping operations, whether under the command of the UN or of the AU. The emergence of civilian components in peace operations, with the creation of management structures and their curricula, takes place in complementarity with the other two pillars of peace operations (military and police). The sessions, organized around presentations followed by Q&A periods, allowed participants to draw some conclusions for the West African and international institutions involved in peacekeeping on alternative civilian deployments and on mechanisms for their management.

From these observations emerges an important issue: the ownership of the process of developing civilian capacities by States, which are the main actors in a process that focuses on regional and international levels. Since this seminar was dedicated to the development of civilian capacities in West Africa, the participants paid special attention to the establishment of the ECOWAS Standby Force (ESF).

2.1 The increasing role of civilians in peace operations.

The Bamako seminar helped to address the growing importance of civilians in peace operations, a direct consequence of expanded mandates dedicated to peace operations. As shown by the transitions undertaken in Africa since the 1990s, the role of civilians in crisis management or conflict is fundamental. Civilians occupy key supporting roles, especially in logistics and administration, while being present in a series of sectorial priority functions, such as political affairs, public information, DDR and human rights. Whenever a peace operation is deployed during a conflict, civilians may also take care of a wide range of tasks including humanitarian and emergency assistance and support of the political process.

The growing interdependence between civilian, police and military components resulted in a modification of the structures of peace operations, with the deployment of increasingly integrated missions. Envisaged by the UN in the Brahimi Report (2000) and defined by a directive addressing the process of integrated mission-planning, this model calls for a pooling of efforts towards an overall goal. This concept, which should be applied from the planning stage of peacekeeping operations, implies a close cooperation in the field, both between each component of a mission and between the mission and external actors on the ground.

The need for civilian expertise, although subject to difficulties inherent to the political and security context in which peace operations are deployed, comes in response to the needs of fragile processes often marked by violence. As demonstrated by the civilian experience of AMISOM, an intervention in a context of open warfare (peacemaking) brings new challenges, but remains essential. Beyond humanitarian action, the civilian personnel of AMISOM are responsible for direct negotiations with several officials and clan leaders in Mogadishu as well as for the mentoring of

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members of the Somali transitional government. As several participants testified, multi-sectorial cooperation in the field is a fact of everyday life, ranging from securing an area, to allowing delivery of humanitarian aid, to giving policy advice to ensure the success of a military maneuver. The establishment of mechanisms for cooperation and coordination between military, police and civilian components, including joint analysis or operational centres/cells in headquarters and in the field to take care of logistics and analysis, are evidence of these realities.

Beyond these considerations regarding the place of the civilian component, the Bamako seminar reiterated the central role of States in issues of peace and security. As members of regional, continental and international organizations, States have an important role to play in international decisions while having the responsibility of capacity-building and national structures. However, States must interact with other players at national and regional levels (civil society, academia, private sector, etc.), especially when it comes to civilian expertise.

2.2 The development of the civilian dimension of the ASF

2.2.1 The civilian dimension of the ASF

The first stages of the African Standby Force were developed in 2003, while the AU structures dedicated to peace and security were being implemented. Closely related to the African Peace and Security Architecture, the ASF obtained a first Roadmap in 2005. However, the development of the military aspect was a top priority, with the effect of postponing the conceptualization of its civilian component to 2006. Catching up with this institutional delay is a priority, since the effective establishment of the ASF is due in 2015 according to its third Roadmap.

The main reference documents were compiled in 2010 by the AU Commission in a book entitled The Civilian Dimension of the African Standby Force. Among these are the strategic framework of the civilian dimension of the ASF and the results of the Kampala (2008) and Dar el-Salam Dar (2009) workshops, where the different models of the civilian component took shape at the sub-regional level.

2.2.2 An uneven development

Mobilization of civilians is a source of structural changes both in the RECs and national deployment support structures. RECs are currently laying the foundations of the management structures and the planning element (PLANELM) based on the models proposed by the AU, while adapting them to regional realities. Much progress has been achieved at the sub-regional level, although progress may differ between the communities. Ultimately, each sub-region will have developed a set of practices for the identification and deployment of civilians and will be in charge of its management. Those in charge of mobilizing available civilian expertise will also take charge of the training and availability of those who will eventually be deployed within the framework of an ASF mission.

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Integration and flexibility of recruitment should be the pillars of these structures. However, this REC freedom of action when it comes to deployable civilians capable of interacting with the military and police components, has to deal with the changing structure of the Peace and Security Department (PSD) of the AU Commission, which is in the process of adopting a different approach. This change could hence pose a dilemma as to the consistency of the regional PLANELM, which is based on the nature of the personnel (military, police and civilian) in regards to a continental level whose structures evolve according to a division of roles, without distinguishing between military, police and civilian components.

The transformation of fragile and/or developing regional structures in order to adapt to this new continental approach causes its share of tensions. More specifically, several representatives of RECs bemoan the lack of dialogue between the AU and their organizations in the development of models proposed for the establishment of the civilian component of various RECs, and the lack of consideration of regional specificities on that matter. These caveats — as well as the complexity of the chosen model of experts pool — may explain the delay in setting up job profiles.

It seems that the RECs will continue to further develop their current model based on the Kampala workshop, arguing that a return to the drawing-board would significantly slow down the development of regional civilian capacities. Changing models would require the adoption of the new model (which is still in draft form) at the continental level and then subsequently at the regional level.

2.3 Civilian capabilities of the ESF: Overview

Building on the experience it gained since the 1990s, ECOWAS has extensive expertise in peace operations. ECOWAS also relies on the political and operational experience of several of its Member States whose contributions in this area are crucial. In this context, the development of the ECOWAS Standby Force (ESF) has seen significant progress in recent years, particularly with regard to its military — and to a lesser extent its police — dimensions. However, one must admit that the development of the civilian component of the ESF has lagged behind. Nevertheless, this delay could be partly recovered by the end of 2012.

2.3.1 A late development

West Africa also has a civilian expertise, whose importance is reflected by the contribution of several West African countries to several UN civilian peace missions, as well as by the existence of several training centers and well-established civil society organizations. Despite this potential expertise, the development of the ESF civilian dimension remains disappointing.

Like that of other RECs, the ECOWAS PLANELM model is based on the one developed by the AU at the workshop held in Kampala in July 2008. This model draws on the structure of a mission HQ. However, the approval of this model has faced several obstacles that have hindered efforts made since 2007 to provide the ESF with a civilian component. According to various

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participants of the Bamako seminar, one of the main explanations lays first and foremost in a misunderstanding of the nature and the role of the ESF civilian component, both from Member States and from ECOWAS.

Within ECOWAS, several structures are already dealing with some civilian tasks. These structures, including the emergency response team, may have seen the creation of the civilian component as a duplication of their activities. It seems that this initial perception of the civilian component as a strictly advisory body has been corrected thanks to the growing involvement of civilians in exercises conducted in the field to test the level of operationalization of the African Standby Force. However, this involvement remains limited and must be supported.

From the perspective of Member States, most seminar participants readily admitted that outreach efforts remained vital in order to raise the awareness and improve the understanding of their governments regarding the issues related to the civilian dimension of peacekeeping operations.

2.3.2. A PLANELM in the making

The experience of several other RECs shows that the creation of a PLANELM plays a leading role in the development of the civilian component of a Standby Force. It is therefore essential to quickly fill the backlog of civil structures in approving the structure of this PLANELM, allowing the recruitment of its officers, the funding for these positions being already secured. However, this dynamic is not yet visible at the ESF, as the development of REC standby forces have mainly been driven by the military. The ESF has not established a civilian PLANELM yet, unlike those in East, Central and Southern Africa. However, there could be a breakthrough since the model of a civilian PLANELM will be presented in the coming months to ECOWAS decision-makers.

Thus, the preliminary structure of the ESF civilian PLANELM, which must still be approved by the organization, makes some changes to the continental model, with the removal of the logistics manager position (these tasks being already performed by other structures of ECOWAS) and the addition of two positions related to DDR / SSR, and the rule of law and human rights, which are issues of particular importance in the region. This approach also aims at aligning the structures and existing skills (civil supply) with the needs of regional theatres (the demand for expertise).

Once this structure is approved by ECOWAS, several signs suggest that things will move forward quickly. Thus, several partners have offered to finance the salaries of the PLANELM positions, which will enable the region to much better regulate and manage its existing civilian expertise. Approval of this planning structure and its key positions is an essential pre-requisite for the next stages of institutional development of the civilian capabilities of the ESF, particularly with respect to the mechanism of recruitment and training.

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2.3.3. The importance of recruitment and training

The recruitment and training of civilians for peace operations, which is the next logical step following the establishment of a PLANELM within the ESF, was the last topic discussed during the seminar. The establishment of a roster to identify and list civilian expertise available for peacekeeping operations depends on the political choices of States. If the roster option is chosen, there are five major models, ranging from direct recruitment, such as the UN, to the signing of contracts with service partners, an option favored by the European Commission.

West Africa, known for the dynamism of its civil society organizations, also has a large pool of expertise, partly developed through the three Centers of Excellence of ECOWAS which each maintain a database of the civilians involved in their training courses. In case of emergency, ECOWAS is meant to have the necessary resources to quickly mobilize civilians. However, the full operationalization of this roster must be preceded by administrative arrangements yet to be created and aligned along PLANELM’s emerging guidelines. These mechanisms should all provide for the validation of the members of the roster and the provision and the centralized management of deployments.

The establishment of a structure is not an end in itself, since it brings a series of questions about the kind of expertise required, the follow-up of candidacies and the training measures put in place to keep this expertise up to date. Of equal importance is the issue of staffing, common to ECOWAS and other organizations involved in peacekeeping. Indeed, one must pay close attention to compensation policies as well as measures of fairness, transparency and availability of experts.

Beyond the definition of the structures to be set up and the needs to be filled, the mere establishment of a roster is not sufficient either, since it is necessary to keep in touch with its members while assuming they have the required technical skills and the ability to function in areas of operations. Thus, the monitoring of the roster is inseparable from its creation. Finally, the seminar participants reiterated the importance of constant contact between the various institutions involved in training and recruitment as well as the peace operations deployed in the field, in order to clearly define the needs for experts and expertise.

Even in the absence of a formal structure in ECOWAS, West Africa remains well-organized in terms of identifying existing civilian capabilities and in terms of training. The three Centers of Excellence (EMP, KAIPTC and NDC) have a renowned expertise in the training of military, police and civilian personnel at the strategic, operational and tactical levels. These institutions are currently working together on the implementation of their respective databases but also networking in order to better harmonize their action under the umbrella of ECOWAS. Thanks to their efforts, ECOWAS should be able — in case of emergency — to quickly identify available civilian experts. Every ECOWAS institutional development should take into account the initiatives undertaken by the Centers of Excellence, and vice versa.

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2.4. An under-noticed institutionalization

The increasing role of civilians in peace operations, which is visible not only in UN missions, but also in AU and ECOWAS initiatives, remains relatively unknown among all actors involved in peace operations, particularly by Member States. Indeed, more often than not, peacekeeping is still viewed through a traditional lens, giving pride of place to its military aspects to the detriment of the civilian dimensions of peace operations. As a result, the development of civilian capacities is an issue that tends to be forgotten in decision-making bodies. This gap, also partly caused by the lack of a clear definition of the role of civilians in peace operations, underlines the importance of advocacy and information. This lack of information also affects the responsibility of States in the mobilization of what is essentially non-State civilian expertise, which restricts the establishment of mechanisms and partnerships that would facilitate deployments.

2.5. The central role of States

The awareness of States of the significance of civilian capacities is all the more crucial as their ownership of the development process currently underway in African and international level is crucial. Indeed, as was noted during the seminar, the full participation of States is a major factor in the success of organizations such as the ESF’s PLANEM. Thus, ECOWAS will be asked in 2012 to approve the structure of the civilian component in order to allow its regional development and staffing. At the national level, the designation of national focal points will also become very important since these leaders will play a crucial role in mobilizing the expertise available, both within their governments and within civil society, and in relaying information between their respective governments and external partners (ECOWAS Centers of excellence, civil society, etc.).

This participation in the development and provision of national expertise should be accompanied by an awareness of the purpose of this activity, which is, for most developing countries, about making available and training their own capacities that can contribute to national development. When available, these individuals may be deployed abroad in a peacekeeping mission and then, building on their experience, they may return to their original positions at the national level. This dynamic is particularly noticeable in the case of civilians from countries emerging from a crisis deployed in African or UN peacekeeping missions.

2.6. The importance of partnerships

The above dynamic is particularly visible in the context of the establishment of the civilian component of the ASF. It leads governments and administrations to rely not only on their own resources, but also to forge collaborations with a wide range of non-state actors, from NGOs to training institutions. Indeed, an increased and better structured civilian presence in peace operations goes together with a multiplication of the actors involved. The recruitment process for civilian expertise in peace operations is only partially under the control of States. It is therefore essential to work towards the establishment of a partnership approach — whether bilateral or multilateral — between all the

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stakeholders for the identification, the recruitment and the training of resources.

These partnerships should not be limited to a strictly financial or technical framework. They should foster dialogue and experience-sharing. In the context of the coming of age of the civilian aspect of the ASF, it is essential to have more such initiatives among RECs and the African Union in order to disseminate the lessons learned and to ensure that the development of ESF meets local priorities and specificities.

3. General recommendations

During the seminar, a number of recommendations emerged from the discussions among participants.

3.1 Continuing mobilization, especially among the States

Raising States’ awareness regarding the nature of civilian capacities is crucial. States play a central role in the development and management of civilian capabilities: in serving on the governing bodies of the structures associated with the deployment of civilians, in approving their budgets, and in providing staff to these structures. At the national level, States also play a leading role by establishing a network of focal points and forging the necessary links to make the most of the pool of expertise that is found in civil society organizations, in universities and in the private sector.

It is therefore essential to publicize the issue of civilian capability development among government officials and decision-makers, particularly as the African Standby Force should be fully operational by 2015. The very same information and awareness activities should be pursued within the structures of the AU and of the CERs, where the exact role of the new structures dedicated to the civilian component of the African Standby Force are still misunderstood.

3.2 Furthering reflection on the concept of civilian missions and positions

From a global viewpoint, it is important to develop the conceptualization of the nature of the civilian component in peace operations and its articulation in the field. Thus, unlike the military component that can accurately describe the duties and assignments of its structures, the civilians’ exact role and place in peace operations may vary greatly depending on the organization and on the context of deployment.

Indeed, as a growing number of civilian deployment structures are created, it is important to continue thinking about the support civilians can provide to crisis exit processes, as well as their role in building local civilian capacities, and the role of outsiders — ranging from humanitarian organizations to multilateral organizations — and the comparative advantages they can bring in such contexts

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The release of the independent report written by the senior advisory group for the review of international civilian capacities in the aftermath of conflict proved to be food for thought for the UN. The reflection following the publication of this document is an interesting starting point to define the main civilian capabilities required (through a mapping exercise) while maximizing the resources available and strengthening the existing partnerships and structures in order to better respond should the need arise. This conceptual thinking, just like that which helped define the duties and responsibilities of international police officers deployed in UN peace operations, cannot be achieved without the active collaboration of all actors involved.

3.3 Improving the definition of priority needs

The development of civilian expertise, whether for domestic purposes or for external interventions, helps in filling all the requirements related to regional conflicts and crises. Given the large number of areas involved, such as DDR or SSR, it may prove difficult to meet this demand, even for States and organizations with substantial resources. Hence the importance of setting priorities as to what civilian expertise is critical for peace and security.

This reflection, already underway within the UN, must be continued in West Africa with a concern for regional particularities. Thus it is important to identify the priority fields of expertise. This identification should take into account the regional needs and resources, in order to maximize the efforts undertaken.

This reflection should also be done regarding the structures created to mobilize these high-priority civilian needs. Thus, it is also necessary to identify what already exists at the regional level and decide on a way forward according to West Africa's main needs concerning peace and security. Everything should encourage the use of flexible structures that do not duplicate existing efforts.

3.4 Inventory and map of the civilian expertise (public servants, civil society

and private sector)

It is important for all actors involved to map the existing civilian expertise in order to ultimately mobilize it for training or deployment. Reaching that goal goes beyond the expertise of public services, such as the military and police. It also involves building relationships with civil society, the private sector and universities. This entails a reinterpretation of the role of government to take into account the forms of recruitment and deployment mentioned above.

Thus, it is recommended to implement actions at the national level in order to properly identify this civilian expertise, including through trade associations and groupings. Several existing resources can be tapped in West Africa, including Centers of Excellence and other training institutions.

Once this preliminary step is taken, the establishment of a roster, however, should not be an end in itself. As the participants at the seminar in Bamako recognized, much effort is required to keep track of the experts who are identified and ensure the quality of applications.

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3.5 Improve communication and coordination between the actors involved

Information exchange, experience sharing and coordination among different organizations, states and other actors involved in the deployment of civilians is essential to ensure cohesion within the various initiatives in staffing, training and deployment of civilians.

As demonstrated in the seminar, inter-regional and inter-disciplinary experience-sharing is a real added value, allowing a better understanding of the challenges and best practices linked to the development of civilian capabilities. Such a dynamic would benefit from the systematic inclusion of representatives of the AU, the five RECs, their Member States and other actors involved in the development of civilian capabilities.

This communication and coordination, which allows understanding of the needs and capacities of a series of interdependent actors, should continue to allow further coordination and harmonization of actions, like the collaboration that has been created between the three ECOWAS Centers of Excellence for their curriculum. The establishment of liaison mechanisms, including the designation of national focal points, is therefore important for future actions.

In the same vein, it is important to promote coexistence and exchange of experience among military, police and civilians at all levels. The military, closely associated with the development of the structures involved in peacekeeping, have a proven expertise that can support the emerging civilian structures of the African Standby Force. This cohabitation, if it is done within the structures, or in training, should be favored since the three types of players will have to work closely on the ground.

3.6 Increase partnerships, including South-South and triangular ones

The establishment of partnerships, both bilateral and multilateral, is needed at all levels to help with the identification and mobilization of civilian capabilities in West Africa. As in the UN’s reflection about civilian capacities, partnerships should involve not only northern countries, but also those of the South. The implementation of triangular partnerships at the financial and technical levels is one method that can enable the sharing and availability of expertise in civilian capabilities from the South. This is the case with Germany's support for South Africa’s assistance to other African countries through the German-South African Trilateral Cooperation Fund.

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4. Specific recommendations

After the seminar, the participants were asked to propose specific recommendations for four types of actors: the UN, AU, ECOWAS and Member States.

4.1 Recommendations for the UN

The UN is the main organization involved in peacekeeping. During the seminar, participants felt that it would do well to take advantage of the high visibility of its work and forums to further awareness among Member States. Indeed, the UN has an important role to play in the conceptual evolution of the civilian dimension that will notably influence debates currently underway at the AU and ECOWAS.

Reflecting the collaboration initiated to strengthen the capacities of the AU (visible through the Prodi report on modalities to support AU peacekeeping operations in 2009), the hybrid nature of UNAMID in Darfur and the close cooperation with AMISOM, the UN should also do the same concerning the support given to capacity building of regional African capacities.

Finally, the seminar participants agreed that the UN should continue with its reflections about the purpose of the civilian role in conflict or post-conflict contexts, which should emphasize developing local resources rather than replacing them. The UN, which has substantial resources and has several initiatives in a variety of civil contexts, should also continue sharing experience.

Summary of recommendations for the UN

Continue raising awareness of the Member States Develop strategies and mechanisms to support the civilian capacity building of RECs, in consultation with the AU Clarify the strategy linked to the development of local resources Increase the sharing of knowledge and experience

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4.2 Recommendations for the AU

The AU has to coordinate and harmonize the implementation of the African Standby Force. Considering the adoption of Roadmap III and the work to be done by the deadline of 2015, participants urged the AU to continue to develop its civilian capabilities, including filling its PLANELM posts quickly so that it can operate at full capacity.

As demonstrated by the interactions and exchanges at the seminar, the AU must also seek to incorporate not only military, police and civilians in its activities, but also bring together the different RECs to promote dialogue and exchanges.

Finally, given that each REC has its own experiences, capabilities and existing structures, it must take care to integrate regional specificities in the development of its strategies.

Summary of recommendations for the AU

Continue the establishment of the PLANELM and increase the number of personnel in the AU Commission Increase dialogue and exchanges with the RECs Take greater account of regional specificities when developing strategies

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4.3 Recommendations for ECOWAS

ECOWAS has a large pool of civilian capabilities that are not yet represented in its regional standby force, the ESF. The seminar participants agreed that it should continue to raise awareness among its members while establishing its civilian planning element (PLANELM) as quickly as possible. As noted during the seminar, the legal approval of the structure will allow the identification and the recruitment of its personnel, who can then accelerate the development of regional civilian capabilities.

Participants also agreed that it should strengthen its relations and interactions with its members, which would not only strengthen its structures, but also clearly identify the regional comparative advantages in order to focus its efforts at the civilian level.

While taking advantage of lessons learned from other African regions in the development of the civilian capabilities of their standby forces, ECOWAS could also continue to benefit from the involvement of civil society in the development of civilian architecture, and benefit from the efforts already undertaken by Centers of Excellence to identify civilian capabilities. Finally, the development of civilian capabilities of West Africa can be facilitated by strengthening and developing partnerships between ECOWAS and external partners from both North and South, whether for financial or technical support.

Summary of recommendations for ECOWAS

Accelerate the establishment of the PLANELM Strengthen communication and the relationship with Member States and continue to raise awareness of States regarding their responsibility in the provision of civilian skills Involve civil society in planning and training Identify the comparative advantages of West Africa while integrating the experience of other RECs Take advantage of existing lists of experts, including those from the Centers of Excellence Continue the search and development of partnerships

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4.4 Recommendations for West African States

Representatives from West African countries must continue to raise the awareness of their national leaders, in government and politics, while identifying focal points that could be called upon to support the identification and development of national civilian capabilities.

This process of developing civilian capabilities, which must be seen as going beyond the simple framework of peacekeeping in order to also meet national needs, must be part of a resource management strategy that allows dialogue and inter-ministerial structures.

While identifying civilian expertise already present in the territory, whether from governments or civil society, the States of West Africa should strengthen their relations with ECOWAS and the Centers of Excellence to contribute to action at the regional level.

Summary of recommendations for West African States

Proactively engage ECOWAS and the Centers of Excellence Complete the identification of focal points Place the development of civilian capabilities within a national strategy of resource management Encourage dialogue and interdepartmental structures Continue the identification and listing of national resources (staff and civil society)

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Appendix 1: Course of the activity

The first day of the activity was devoted to drawing up an inventory of the civilian component of peace operations, then of the reality of civilian components in multidimensional operations. Thus the first session was used to present an overview of the civilian contribution to peace operations.

Recalling the increasing use of civilians by the UN and other international organizations involved in peacekeeping, David Morin, professor at Université de Sherbrooke and Deputy Director of ROP, presented the main civilian functions and the challenges linked to their deployment, including for the African Standby Force. Renata Dwan, senior project manager for the UN civilian capacities team, introduced the current debate within the UN concerning the mobilization of civilian capacities, given the close links between conflict resolution, peacebuilding, reconstruction and economic development. His presentation helped to clarify the possible role of West Africa in the implementation of key recommendations of the UN Secretary General report on civilian capacities in the aftermath of conflict, released in August 2011 (A/66/311 -S/2011/527). Finally, Carol Mottet, of the Swiss Federal Department of Foreign Affairs (DFA), presented the reasons pushing Switzerland to focus on civilian capabilities, while providing an overview of the capacity building activities it conducts in West Africa.

In the afternoon, Frederic Ngoga Gateretse, Advisor of the AU Special Envoy for Somalia and Head of the Mission Analysis Cell (MAC) of AMISOM, presented the role of civilians in the mandate of AMISOM, and their challenges in the field. Finally, Commissioner Ahamadou Oumar Soumare and Lieutenant Colonel Oumarou Maiga, instructors at EMP, each discussed the necessary complementarities and cooperation between military, police and civilian personnel in multidimensional operations, as in the case of MINUSTAH in Haiti.

On the second day of the seminar, Oury Traore, a consultant for the ECOWAS, presented the efforts to create the civilian component of the ECOWAS Standby Force (ESF) and the next planned institutional developments. The session also allowed the various states present to consider the support they could offer to this process. Finally, Athanase Nthanga Oyoughou (ECCAS), Haretsebe Mahosi (SADC) and Xavier Ngendakumana (EAC) were able to share lessons and best practices in the development of civilian capabilities in other African regions.

Subsequently, Catherine Guicherd, consultant and formerly Head of the ECCAS Support Programme for Peace and Security (PAPS) financed by the EU, presented the links between training and deployment for the African Standby Force, notably by identifying the different deployment models available for West Africa. Nanzelelo Moyo (AFDEM), and Modibo Goïta (EMP), respectively addressed the rosters, such as the one operated by AFDEM, and the process of creating a roster shared by the three ECOWAS Centers of Excellence.

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During the last session, Modibo Goïta (EMP), Julie Sanda (NDC) and Joana Ama Osei-Tutu (KAIPTC) presented the programs and activities of the three ECOWAS Centers of Excellence. The whole was followed by a dialogue on the way forward to strengthen global civilian capacities. The activity ended with a closing ceremony held at the Bamako Peacekeeping School.

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PROGRAM

INFORMATION AND AWARENESS SEMINAR ON

WEST AFRICAN CIVILIAN CAPACITIES

DECEMBER 8-10, 2011

THURSDAY, DECEMBER 8

10.00 – 10.30 Welcome

10.30 – 11.00 Introduction. Presentation of the main objectives and structure of the activity, as well as the participation expected from the delegates. - Modibo Goïta, head of the civilian component at the EMP Bamako - David Morin, Professor at Université de Sherbrooke and Associate Director of ROP

THE CIVILIAN COMPONENT OF PEACE OPERATIONS: OVERVIEW, CHALLENGES AND

POSSIBILITIES

11.00 – 12.30 The international civilian contribution to peace operations: an overview.

What is the current situation regarding civilian capacities for peace operations? What are the main civilian functions? What are the main challenges and issues regarding civilian capacities? - David Morin, Professor at Université de Sherbrooke and Associate Director of ROP

Civilian capacities: the United Nations’ point of view. What are the main conclusions of the Senior Advisory Group on civilian capacities? How will the UN implement them and what contribution can West African countries make to strengthen global civilian capacities? - Renata Dwan, Senior Project Officer for the UN Civilian Capacities Project The civilian dimension of the African Standby Force. What is the current level of implementation of the civilian component of the African Standby Force, on the continental and regional level? What are the main objectives of the third ASF Roadmap? -Carol Mottet, Federal Department of Foreign Affairs (FDFA) of Switzerland

12.30 – 13.30 Exchange of ideas

13.30-15.15 Lunch

THE INTEGRATION OF CIVILIANS

15.15 – 16.45

The civilian component in multidimensional missions: The case of

AMISOM. What are the main lessons to be learned from the establishment of AMISOM’s civilian component? How can they apply to future missions deployed within the African Standby Force? - Fred Ngoga Gateretse, advisor to the AU Special Envoy for Somalia and Head of the Mission Analysis Cell (MAC) in AMISOM

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The views of other actors: the military and police. Presentation of the military and police components’ point of view regarding the role of civilians, as well as of coordination mechanisms to facilitate multi-dimensional work in the field. - Commissioner Ahamadou Oumar Soumare and Lieutenant Colonel Oumarou Maïga (EMP Bamako)

16.45 – 17.00 Coffee break

17.00 – 18.00 Exchange of ideas

FRIDAY, DECEMBER 9

9.00 – 9.15 Objectives of the day

THE ECOWAS STANDBY FORCE

9.15 – 10.45 The civilian component of the ECOWAS Standby Force. What are the current efforts to provide the ECOWAS Standby Force with a civilian component? What are the next institutional developments? How did ECOWAS take to the challenges linked to civilian participation for the establishment of its planning element (PLANELM)? What can countries do to support this process? - Oury Traoré, Consultant for ECOWAS

The experience of other RECs and regional mechanisms: What are the main progress and lessons learnt from the development of their civilian capacities? - Athanase Nthanga Oyoughou (ECCAS), Haretsebe Mahosi (SADC) and Xavier Ngendakumana (EAC).

10.45 – 11.00 Coffee break

11.00 – 12.30 Exchange of ideas

12.30 – 14.30 Lunch

RECRUITMENT AND DEPLOYMENT

14.30 – 15 :30

Presentation of the main challenges to civilian participation: Overview of the key civilian profiles required and of the mechanisms allowing the identification, recruitment, training and deployment of civilian experts. Presentation of the challenges associated with the availability of department personnel and of experts coming from civil society. - Catherine Guicherd, Consultant The rosters of civilian experts. Presentation of the regional mechanisms facilitating the deployment of civilian personnel and overview of the management of a roster. Overview of the collaboration between AFDEM and regional organizations during the establishment of the African Standby Force - Nanzelelo Moyo, AFDEM

The rosters of civilian experts. Presentation of the efforts made to create a roster for ECOWAS and overview of the main challenges facing its implementation. - Modibo Goïta, head of the civilian component at the EMP Bamako

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15.30– 15.45 Coffee break

15.45 – 16.45 Exchange of ideas

SATURDAY, DECEMBER 10

TRAINING AND PARTNERSHIPS

9.00 – 10.30 Training and strengthening capacities

Presentation of the main programs offered by the three ECOWAS Centers of Excellence - Modibo Goïta (EMP Bamako), Julie Sanda (NDC) and Joana Ama Osei-Tutu (KAIPTC).

10.30 – 11.00 Exchange of ideas

11.00 – 11.30 Conclusion. What are the key lessons learned from this seminar? What are the best practices concerning civilian capacities? Are capacity building partnerships operated at fair value and do they respond to the needs of the target countries? - David Morin (ROP), Modibo Goïta (EMP) and Renata Dwan (UN)

12.30 – 14.00 Closing ceremony followed by a cocktail at EMP Bamako

14.00 – 15.00 Visit to the Bamako Peacekeeping School

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Appendix 2: List of participants

West African States

BENIN

Eusèbe AGBANGLA Patrick AHO Francis A. BEHANZIN

BURKINA FASO

Colonel Hamado DABRE Issa SOMA Commissioner Papouté Yabiri OUEDRAOGO

GHANA

Habib IDRIS MOHAMMED Joseph Benjamin POKOO-AIKINS Lieutenant Colonel Mohammed MUSTAPHA

MALI

Dr. Issa KEITA Captain Bougadary SINGARÉ Yagagna SANOGO

NIGER

Lieutenant Colonel Moussa ABOUBACAR Police Commissioner Abdrahmane ALFAROUK Seibou SOUMANA

NIGERIA

Superintendent Abdulkadir HAMZAT Kashim Merezu OJIROBE Lieutenant Colonel Yakubu Otilo ONALO

SENEGAL

Commander Mamadou DIOUF Police Commissioner Mody NDIAYE

SWITZERLAND

Carol MOTTET

TOGO

Lieutenant Colonel Hodabalo AWATE Commissioner Kokou NUTSUGAN Sedji Kokou SOWADAN

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International Organizations and RECs

UN

Renata DWAN

ECCAS

Athanase NTHANGA OYOUGOU

EAC

Xavier NGENDAKUMANA SADC

Haretsebe MAHOSI

Peace Operations

AMISOM

Frederic NGOGA-GATERETSE Centers of Excellence

EMP

Marie BRUNING Békaye COULIBALY Modibo GOÏTA Lieutenant Colonel Oumarou MAÏGA Commissioner Ahamadou Oumar SOUMARE

KAIPTC

Colonel Leo HIRSCHMANN Joana Ama OSEI-TUTU

NDC

Julie SANDA Consultants

Catherine GUICHERD Oury TRAORÉ Civil Society

AFDEM

Nanzelelo MOYO Pearson Peacekeeping Center Mohamed SULTAN

Research Network on Peace Operations (ROP)

Sandra GASANA David MORIN Etienne TREMBLAY-CHAMPAGNE

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Appendix 3: Civilian functions defined by the Kampala

workshop

These functions, defined at a workshop in Kampala in July 2008, should be mobilized in each of the regions involved in the establishment of the African Standby Force.

Essential civilian functions Support functions of the Mission

Political affairs Human resources Legal advice Finance Planning and coordination Purchasing Public information Logistics Humanitarian liaison Engineering Human rights Geographic information systems

(GIS) Gender issues Information technology and

communication technology (ICT) Child welfare Transport Conduct and discipline Contingent-owned equipment Rule of law Security Electoral affairs Integrated training services Disarmament, demobilization and reintegration (DDR)

Civil affairs Security sector reform (SSR)

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Appendix 4: Possible types of recruitment for the ESF

1- Direct recruitment

E.g.: UN Department of Peacekeeping Operations and Department of Field Support

2- Direct detachment of public servants and of state officials

E.g.: EU Common Foreign and Security Policy (CFSP) and, on occasion, the United Nations.

3- Recruitment by contract through national pools

E.g.: ZIF, UK Post-Conflict Reconstruction Unit (PCRU), United States, CANADEM

4- Direct contractual recruitment through a standalone roster

E.g.: AFDEM

5- Contracting of service providers

E.g.: European Commission, World Bank, USA, UK