Many humanitarian interventions led and supported by the United States go beyond simple disaster relief and include such difficult tasks as protecting refugees, securing humanitarian aid, and restoring civil order. The U.S. Air Force often plays an important role in such complex contingency operations. MR-1185-AF explores how the military might improve coordination with relief agencies and with European allies in such operations. It examines the dynamics of complex contingency operations, provides an overview of the relief community, delineates barriers to better cooperation, discusses the European contribution, and recommends steps the military might take to improve coordination in future crises. Steps include improving military familiarization with key relief organizations humanitarian advisor, establishing more centers of excellence, and bringing relief organizations into the planning process.

Preface

iii

Figures

ix

Tables

xi

Summary

xiii

Acknowledgments

xxiii

Abbreviations and Acronyms

xxvii

Introduction

1

(6)

Research Approach and Structure

3

(4)

PART ONE. COMPLEX CONTINGENCY OPERATIONS AND THE ROLE OF THE MILITARY

Characteristics of Complex Contingency Operations

7

(6)

Frequency of Conflict and Response

13

(14)

Incidence of Conflict Worldwide

13

(7)

Unpredictability of Intervention

20

(2)

Drivers of Intervention

22

(1)

Limited Warning Time

23

(1)

Preference for Multilateralism

24

(3)

Military Tasks in Complex Contingencies

27

(18)

Provide Humanitarian Assistance

28

(2)

Protect Humanitarian Assistance

30

(4)

Assist Refugees and Internally Displaced Persons

34

(3)

Enforce Peace

37

(2)

Restore Order

39

(6)

Common Constraints on Operations

45

(14)

Weak Resolve at Home

45

(6)

Balancing Conflict and Reconciliation

51

(3)

Advanced Planning Difficulties

54

(5)

PART TWO. THE RELIEF COMMUNITY AND THE MILITARY

Overview of the Relief Community

59

(14)

United Nations Family

59

(3)

Red Cross and Red Crescent Movement

62

(2)

Nongovernment Organizations

64

(3)

Categorizing Nongovernment Organizations

67

(6)

Advantages to Better Coordination with the Relief Community

73

(8)

More Rapid Response

73

(1)

Smoother Airlift

74

(1)

More Timely Identification of Local Needs

75

(2)

Better Exploitation of Expertise

77

(1)

More Efficient Use of Resources

78

(3)

Coordination Structures and Their Limits

81

(20)

Interagency Process

83

(1)

International Coordination

84

(1)

Operational-Level Arrangements

84

(7)

Coordination Structures

91

(6)

Center of Excellence

97

(4)

Barriers to Improved Coordination with Relief Agencies

101

(22)

Disparate Organizational Cultures

102

(2)

Concerns About Neutrality and Impartiality

104

(3)

Limited NGO Ability to Plan

107

(3)

Ambivalence About Sharing Information

110

(2)

Competition for Publicity

112

(1)

Varying Time Horizons

113

(1)

Mutual Lack of Familiarity

114

(2)

Limited Coordination Within NGOs

116

(1)

Uncertainty About the Military's Commitment

117

(1)

Improving Prospects for Cooperation

118

(5)

PART THREE. WORKING WITH EUROPEAN ALLIES

Humanitarian Intervention as a Coalition Activity

123

(18)

European Activity and Outlook on Humanitarian Missions

124

(2)

The Military Dimension

126

(1)

Regional Bases and Experience

127

(1)

Relations with NGOs and NGO Concerns

128

(2)

Transatlantic Synergies in Humanitarian Contingencies

130

(1)

What Role for NATO?

131

(5)

Some Observations on Kosovo

136

(5)

PART FOUR. IMPLICATIONS AND RECOMMENDATIONS

A Strategy to Improve Coordination

141

(62)

Ensure Familiarity: Recommended Actions

143

(7)

Improve Information Sharing: Recommended Actions

150

(5)

Improve Long-Term Planning: Recommended Actions

155

(8)

Avoid the Potential Pitfalls of Selective Engagement

163

(6)

Improve the Coordination of the Relief Flow: Recommended Actions

169

(5)

Establish Initiatives with Allies

174

(5)

Final Words

179

(2)

Appendix

A. U.S. NGOs

181

(6)

B. Major International NGOs

187

(8)

C. French Experience and Perspectives

195

(8)

Bibliography

203

(12)

Index

215

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