COUNCIL OF
THE EUROPEAN UNION

Brussels, 18 March 2002

7106/02

COSDP 67

FORWARDING NOTE
from :
Secretariat
to :Delegations
Subject :Civil-Military Co-operation (CIMIC) Concept for EU-Led Crisis
Management Operations

Delegations will find attached the document Civil-Military Co-operation (CIMIC) Concept for
EU-Led Crisis Management Operations that was endorsed by the EU Military Committee throughexpiring of silence procedure on 8 March 2002.

7106/02

WP/mm
EUMS

1

EN

CIVIL-MILITARY CO-OPERATION (CIMIC)CONCEPT
FOR EU-LED CRISIS MANAGEMENTOPERATIONS

7106/02

WP/mm
EUMS

2

EN

CIVIL-MILITARY CO-OPERATION CONCEPTFOR EU-LED CRISIS MANAGEMENT OPERATIONSTABLE OF CONTENTSTABLE OF CONTENTS .............................................................................................................. 3
REFERENCES.............................................................................................................................. 5A.

INTRODUCTION................................................................................................................ 6

B.

PURPOSE............................................................................................................................. 7

C.

AIM....................................................................................................................................... 7D.

SCOPE.................................................................................................................................. 7

E.

ABBREVIATIONS .............................................................................................................. 8F.

PERCEPTION OF CIMIC.................................................................................................. 8G.

CIMIC DEFINITION .......................................................................................................... 9

H.

CIMIC CORE FUNCTIONS............................................................................................... 9
General ........................................................................................................................ 9
Civil-Military Liaison (CML) ..................................................................................... 9
Support to the Civil Environment (SCE) ................................................................. 10
Support To the military Force (STF) ....................................................................... 10I.

CIMIC ASSOCIATED ACTIVITIES IN EU-LED CMO................................................ 10
Civil Emergency Planning (CEP) ............................................................................. 11
Information Operations (Info Ops) .......................................................................... 11
Host Nation Support (HNS) ...................................................................................... 11
Contracting................................................................................................................ 12
Medical support ........................................................................................................ 12
Management of civil resources ................................................................................. 12J.

CIMIC GUIDING PRINCIPLES...................................................................................... 12
Guiding principles governing the military direction of CIMIC .............................. 12
Mission primacy ................................................................................................ 13
Command direction............................................................................................ 13
Economy............................................................................................................ 13
Concentration..................................................................................................... 13
Legal obligations and humanitarian considerations............................................. 147106/02

WP/mm
EUMS

3

EN

Guiding principles governing the civil-military relationship .................................. 14
Co-ordinated civil and military CIMIC planning ................................................ 15
Mutual support................................................................................................... 15
Common goals ................................................................................................... 15
Shared responsibility.......................................................................................... 16
Transparency ..................................................................................................... 16
Consent.............................................................................................................. 16
Communication.................................................................................................. 16
Cultural awareness ............................................................................................. 17
K.

CIMIC TASKS................................................................................................................... 17
General ...................................................................................................................... 17
CIMIC tasks .............................................................................................................. 17
Planning............................................................................................................. 17
Advice ............................................................................................................... 17
Education and Training ...................................................................................... 18
Communication.................................................................................................. 18
Information exchange......................................................................................... 18
Co-ordination..................................................................................................... 18
Arrangements..................................................................................................... 19
Agreements........................................................................................................ 19
Transition and termination activities................................................................... 19
Assessment ........................................................................................................ 19
Implied tasks...................................................................................................... 19

L.

CIMIC STRUCTURE - RESPONSIBILITIES ................................................................ 21
Permanent CIMIC structures................................................................................... 21
European Union Military Staff (EUMS)............................................................. 21
European Union CIMIC Conference (EUCC)..................................................... 21
CIMIC structures activated for a given EU-led operation ...................................... 22
Preliminary remarks........................................................................................... 22
CIMIC elements at OHQ level ........................................................................... 22
CIMIC elements at FHQ level............................................................................ 23
CIMIC elements at Component Commander level.............................................. 23
CIMIC elements in subordinate formations or units............................................ 23
CIMIC Centre .................................................................................................... 24
Civil-Military Commissions ............................................................................... 24
CIMIC Lead Nation ........................................................................................... 25

M.

CIVIL ORGANISATIONS................................................................................................ 25

ANNEXESA
B

Abbreviations....................................................................................................................... 26
Civil organisations ............................................................................................................... 27

7106/02

WP/mm
EUMS

4

EN

CIVIL-MILITARY CO-OPERATION CONCEPTFOR EU-LED CRISIS MANAGEMENT OPERATIONSREFERENCES
1

Treaty of the European Union

2

Suggestions for procedures for coherent, comprehensive EU Crisis
Management (Document 14614/01 dated 09 January 2002)

3

Guidelines for military command and control aspects of EU-led crisis
management operations (Document 13342/1/01 Rev 1
dated 29 January 2002)

4

EU Concept for Military strategic planning (Document 12046/01
dated 25 September 2001)

5WEU Concept on Civil-Military Co-operation - CM (99) 53 3rd revision

6

NATO Military Policy on Civil-Military Co-operation - MC 411/1

7

Draft NATO CIMIC Doctrine - AJP-9

8UN Guidelines on the use of military and civil defence assets in disaster
relief - UN DHA Geneva - Project DPR 213/3 MCDA (Oslo Guidelines)

9

UN Brahimi report7106/02

WP/mm
EUMS

5

EN

CIVIL-MILITARY CO-OPERATION CONCEPTFOR EU-LED CRISIS MANAGEMENT OPERATIONSA.

1INTRODUCTION
1.

In accordance with the conclusions of the European Council at Cologne, Helsinki, Feiraand Nice, the European Union (EU) is developing both its military and civilian crisis
management capabilities in a coherent framework, encompassing the instruments
pertaining to different pillars across the whole range of Petersberg tasks.

2.

In support of the EU Common Foreign and Security Policy (CFSP) and to strengthen
the EU's contribution to international peace and security in accordance with theprinciples of the United Nations (UN), the EU Member States committed themselves,by the year 2003, to be able to deploy rapidly and to sustain forces capable of executing
the full range of Petersberg tasks as defined in the Treaty of the European Union,
namely1:a.

Humanitarian and rescue tasks.

b.

Peacekeeping tasks.

c.

Tasks of combat forces in crisis management, including peacemaking.

3.

The development of the European Union Security and Defence Policy (ESDP), throughthe addition of the military dimension, a police component and other civilian aspects hasenhanced the EU's crisis response options. An effective response to a crisis may require
the employment of this range of civilian and military instruments in a comprehensive,
coherent and co-ordinated manner.

4.

The increasing potential for EU-led Crisis Management Operations (CMO) in alreadycomplex environments and the need to generate a composite response with the external
civil actors operating within the same area underpin the requirement for a CIMIC
capability as a military support function.

5.

Co-operation with civilians may be a central part of a military operation, as in the caseof humanitarian or rescue tasks and will vary for different types of EU-led CMO. The
context of CIMIC will also change as the operations develop, ranging from maintaining
the Commander's freedom of action within the operations area to assisting in shaping
the operations area to the mutual benefit of both military and external civil actors andthereby enabling the Commander for EU-led CMO to play more effectively his part inany composite response to a complex multi-functional operation. Military forces in EUled CMO may be partially dependent on civilian institutions and population forresources, information and even security. Failure to establish and maintain sound cooperation and co-ordination may have a detrimental impact on any EU-led CMO.

Treaty on the European Union - Article 17.

7106/02

WP/mm
EUMS

6

EN

B.

C.

6.

Within EU, CIMIC must however not be confused with Civil-Military Co-ordination
still under development. The former covers the co-operation between the EU-led
military force and independent external civil organisations (International Organisations(IO), Non-Governmental Organisations (NGO), local authorities and populations) as
CIMIC is traditionally referring to an external oriented military support function; thelatter is covering the co-ordination of EU civil and military crisis management
instruments, executed under the responsibility of the Council. Certainly, in EU-led
CMO, CIMIC will also need to take into consideration the overall EU co-ordination ofcrisis management instruments and EU-led military forces may be authorised to assist
EU civil bodies in the execution of tasks in support of independent organisations or
populations. This Concept will have to be reviewed and adapted if necessary, following
the development of EU crisis management capabilities and as experience is gained.

7.

Since several EU Member States are eligible to operate under EU or NATO-command,the present concept is compatible with NATO CIMIC policy and doctrine to ensure thehighest degree of harmonisation between EU and NATO.

PURPOSE8.

The purpose of this document is to describe a concept for CIMIC in EU-led CMO. It
encompasses the policy, doctrine and procedures for the preparation, planning andexecution of CIMIC related activities, taking into account the operational requirements
in conflict prevention and crisis management. In addition, this document may provide
guidance on CIMIC concepts to the EU Member States and to appropriate military
Headquarters (HQ) for EU-led CMO.

9.

Furthermore, the concept allows for establishing situation dependent CIMIC structures,
which would, from a very early stage, enable EU Member States and relevant (internaland external) civilian institutions and organisations to contribute actively to the military
CIMIC planning process. In addition, it will facilitate the inclusion of military inputs toco-ordinated civil and military planning at all levels, reducing the risk of divergent
planning in capitals, civilian organisations and at EU HQ.

AIM
10.

D.

The concept for CIMIC in EU-led CMO aims at establishing the basis and frameworkfor planning and execution of joint and multinational CIMIC activities. In addition, it
sets standards for CIMIC structures, as well as related tasks and responsibilities toensure an effective CIMIC contribution to crisis response.

SCOPE
11.

During the management of a particular crisis, the Council approves the crisis
management concept, describing the EU's overall approach to the management of thecrisis, addressing the full range of activities (diplomatic, economic, humanitarian,military) including the definition of politico-military objectives for any possible militaryactivities.

7106/02

WP/mm
EUMS

7

EN

E.

12.

The principles and policies set out in this document apply for the routine civil-military
co-operation effort and in response to a specific crisis over the entire range of thePetersberg tasks and whenever an EU-led military operation is envisaged and/or
executed. They provide sufficient flexibility for close co-operation with UN, OSCE,
NATO and other relevant civil organisations and for non-EU Member States1
participating in an EU-led CMO.

13.

This concept does not address mechanisms and arrangements for Civil-Military Coordination within the EU.

ABBREVIATIONS
14.

F.

The list of abbreviations used in this document is at annex A.

PERCEPTION OF CIMIC
15.

The purpose of CIMIC in EU-led CMO is to establish and maintain on the one hand theco-operation between the military components and any external civilian actors2
including IO and/or NGO whose in theatre efforts are mutually supportive. On the other
hand CIMIC will establish and maintain the co-operation with the civilian authorities
and populations within the Commander's area of operations, in order to create the best
possible moral, material and tactical conditions for achievement of the mission's
purpose. The focus of CIMIC is to support the military mission. By this CIMIC also
supports and facilitates the sustainment of conditions, which will support theachievement of lasting solutions for the crisis, including the support to the civil
processes aimed at bringing the crisis situation back to normalcy.

16.

In operational terms, CIMIC elements of the EU-led CMO act as interface between the
military components of EU-led CMO and any external civilian actors. CIMIC does not
imply the execution of other functions in support of the EU-led CMO, some of which
rely on external actors. However, close co-ordination of such functions is therefore apre-condition for an effective CIMIC contribution to EU-led CMO (see further details in
Section I).

17.

CIMIC implies neither military control of external civilian organisations or agencies nor
the reverse. It recognises that:a.

1
2

The military force in EU-led CMO will be deployed to conduct a Petersberg taskand, if mandated, to support the appropriate civil authority for the implementationof civil related tasks. The execution of civil related tasks should be clearly
identified in the Council mandate and subsequently be incorporated as support tothe appropriate external civilian agencies, into the mission of the EU-led militaryforce.

Those States could include non-European members of NATO, those States who have applied
for accession to the EU and other States who entered into dialogue with the EU.
Throughout the text, the term "external" civil organisations refers to non-EU civil bodies.

7106/02

WP/mm
EUMS

8

EN

b.

G.

In exceptional circumstances however, the military force may be required to carryout tasks, which are normally the task of a mandated civil authority, organisationor agency. These tasks should only be executed when authorised in the Operation
Plan (OPLAN) and when the appropriate civil body is not present or is unable tocarry out its mandate and if an unacceptable vacuum would otherwise arise. The
military force should be prepared to undertake these tasks when requested by therecognised civil authority, until assumed by the mandated civil authority,organisation or agency.

18.

CIMIC is an important factor to enhance the effectiveness of an EU-led CMO. The
operational environment, the adequacy and stability of civil infrastructure as well as thelevel of support and co-operation of the host nation and the local population will
determine the extent of the civil-military interface required.

19.

CIMIC is an integral part of the military planning process throughout the spectrum ofPetersberg tasks, although the precise content and the relative importance of CIMIC will
depend on the type of mission. CIMIC is therefore also a responsibility of the politicaland strategic level (EUMC - EUMS) in order to create and prepare the best possible
conditions for the execution of CIMIC related tasks at subordinate levels.

CIMIC DEFINITION
20.

In view of the perception described in Section F, CIMIC in EU-led CMO is defined asfollows:"Civil-Military Co-operation (CIMIC) is the co-ordination and co-operation, in supportof the mission, between military components of EU-led Crisis Management Operations
and civil actors (external to the EU), including national population and local authorities,
as well as international, national and non-governmental organisations and agencies."

H.

CIMIC CORE FUNCTIONS
21.

GeneralThe CIMIC core functions are grouped into 3 broad areas: Civil-Military Liaison(CML), Support to the Civil Environment (SCE) and Support To the military Force(STF). These functions are executed at all levels, although their intensity may vary fromone level to the other, depending on the nature of the mission.

22.

Civil-Military Liaison (CML)a.

Civil-Military Liaison is the liaison between military components and external
civilian organisations (including IO, NGO, local authorities and civil populations).

b.

The aim of CML is to create a relationship between EU-led military forces for
CMO and the civil environment for the advance preparation, as well as for theplanning and conduct of such an operation. This liaison starts at the political andstrategic level and is a precondition for liaison activities at lower levels. Its
intensity will depend on the envisaged external civil organisations.

7106/02

WP/mm
EUMS

9

EN

c.

23.

24.

I.

Although CML will be a fundamental part of the other core CIMIC functions, it
can be an independent activity with its own purpose and aim, in order to createand sustain permanent relationships with relevant civilian actors.

Support to the Civil Environment (SCE)a.

Support to the Civil Environment covers military arrangements, resources or
activities to sustain the basic humanitarian needs of a civil population or to
support, in the context of the overall EU support, a civil authority or organisationin the execution of its task. In certain circumstances, this support may fall under
the overall responsibility of mandated civil authorities.

b.

SCE can cover CIMIC activity from arrangements to ensure exchange of
information, to major national infrastructure repair and reconstruction. It might
encompass a wide range of military resources: information, personnel, material,
equipment, communication facilities, specialist expertise or training. In the case ofa humanitarian crisis, it will usually be employed in direct support of civilian aid
agencies. Military components of EU-led CMO may become responsible for thedelivery and support of humanitarian aid, either when mandated or, in exceptional
circumstances, when aid agencies request so, because they are unable to carry out
specific tasks.

c.

SCE may include operations to support public services and the environment,
economic and trade support activities, development of aid projects and activities
to support IO, NGO, civil authorities and organisations.

d.

Decisions on the depth, duration and extent of SCE should be made at the politicaland strategic level, taking into account political, civil and military factors.

Support To the military Force (STF)a.

Military commanders for EU-led CMO might require civilian support within theirarea of responsibilities. The military force may be even partially dependent on thecivil society for resources and information, and may rely on the civil authorities toprovide security in certain areas. Regardless of the physical support required,military authorities for EU-led CMO will also seek more abstract, but not lessimportant civil support by encouraging the population to perceive the legitimacyof the EU-led CMO and its acting in the best interest of the population.

b.

CIMIC facilitates the support to the military force in EU-led CMO other than in
the field of logistics and HNS. STF covers arrangements and activities needed toensure the maximum co-operation of the civil authorities, organisations andpopulations in supporting the mission of the military force and sustaining its
presence in a crisis situation.

CIMIC ASSOCIATED ACTIVITIES IN EU-LED CMO
CIMIC occupies one part of the spectrum of civil-military relations. There are a number ofassociated activities, which, although different, are closely linked with CIMIC. Principals
among these are:7106/02

WP/mm
EUMS

10

EN

25.

Civil Emergency Planning (CEP)
CEP is a national (host nation) civil responsibility. Its planning parameters can varyfrom country to country. During the crisis management process, CIMIC facilitates,
within security constraints, co-ordination of military plans with existing CEP plans(National, UN and NATO). CEP might affect freedom of movement and actions, andthe military plan must take into account the need to protect the civil population, as wellas the need to maintain vital functions of society. It is thus essential that CIMIC
elements establish links with the relevant CEP agencies and determine how planned andimplemented CEP measures will affect EU-led CMO.

26.

27.

Information Operations (Info Ops)a.

CIMIC and Info Ops within EU-led CMO have to be closely co-ordinated toensure that the intent of the Commander for EU-led CMO or any military action
taken by the EU-led force will be explained clearly, and that estimates of the
population's mood and expectations will be taken into account.

b.

Planning of CIMIC actions will consider the expected influence on information
campaigns. Conversely Info Ops planning will take into account CIMIC activities
in every Information Campaign.

Host Nation Support (HNS)1
a.

b.

1

Host Nation Support is civil and military assistance rendered by a Host Nation(HN) to military forces in EU-led CMO, which are located on, operating in, ortransiting through the HN's territory. It seeks to provide support in the form ofequipment, facilities and services, including area security and administrative
support in accordance with concluded HNS arrangements between the EU
Member State, EU and a HN. HNS facilitates the introduction of EU-led militaryforces into an area of operations by providing essential reception, staging andonward movement support. HNS could reduce the amount of (logistic) forces andequipment required for sustaining and redeploying the military forces.
The role of CIMIC with respect to HNS is to provide co-ordination and liaison
that will assist in making the necessary civil resources available. Additionally
CIMIC will help to ensure a balance between the use of resources by EU-led
military forces, local populations and external civil actors, with a view to avoiding
unnecessary civilian hardship. Consequently close co-ordination between the
CIMIC and HNS elements of the EU-led military force is required.

Throughout the text and whenever reference is made to Host Nation and/or Host Nation
Support, the term "Nation" is used with the only purpose of maintaining a widely recognised
military terminology.

7106/02

WP/mm
EUMS

11

EN

28.

29.

30.

J.

Contractinga.

Contracting is the commercial acquisition of materials and civil services by EU
Member States and/or EU for their forces in support of an EU-led CMO. It is oneof the elements logistic planning should take into consideration.

b.

Local contracting can be supported or, in certain circumstances be performed by
the CIMIC elements within the limits of the delegations accorded to them.

Medical supporta.

Medical support encompasses the full range of medical planning and provision of
medical health services to maintain the force strength through disease prevention,
evacuation, rapid treatment of the diseases, injured and wounded.

b.

Medical staff may provide medical assistance to the local population taking into
account the capabilities of local medical and health services to necessary followup treatment.

c.

If requested, medical staff can give advice on the co-ordination andimplementation of different medical projects promoted by CIMIC elements, IO or
NGO, in the area of health care to the civil community. Such advice will take into
consideration the duplication of effort and the priority requirements of the
projects.

Management of civil resourcesa.

CIMIC elements can contribute to the co-ordination and liaison in theatre to makecivil resources available and to ensure a balanced use of resources by the militaryforce, the local population, IO and NGO.

b.

Even where a humanitarian crisis is absent, the introduction of a large militaryforce can reduce the available civil resources to the point where it could cause
hardship among the civilian population. It is a CIMIC task to perform a thoroughassessment of the availability of civil resources. It may also be necessary tosupport the civil authorities in the management of civil resources to ensure that
there are sufficient resources available to meet both civil and military needs. In
extreme cases, it may be necessary to ration critical scarce local commodities. In
this case, it will be a CIMIC task to monitor the distribution of relevant supplies.

CIMIC GUIDING PRINCIPLES
31.

Guiding principles governing the military direction of CIMIC
CIMIC is a military support function and should be fully integrated in the objectives of
the Commander for EU-led CMO. The principles governing the military direction guidethe military planning for EU-led CMO to enable the development of CIMIC plans andregulate their execution.

7106/02

WP/mm
EUMS

12

EN

a.

Mission primacy
The mandate and the resulting mission of any EU-led CMO take priority in all
circumstances. If in exceptional circumstances however, additional CIMIC related
tasks are to be assumed, it should be done after the prioritisation of the militarytasks and an assessment of the necessary resources in co-ordination with civilian
agencies.

b.

Command direction
The direction of CIMIC related activities in EU-led CMO is a normal command
responsibility of the military Commanders at all levels. They should becontinually aware of the impact of military operations on the civil environment
and the impact of the civil environment on their operations. They must be able toprioritise and direct CIMIC activities in such a way that military effectiveness ismaintained without adding unnecessarily to civil hardship or compromising civil
objectives.

c.

d.

Economy(1)

Civil organisations are best suited to perform civilian tasks. If however, EUled military forces are needed to perform civil related tasks in support of thecivil environment, only the minimum required military resources should be
used, since military resources might not always be available and/or belimited, and care must be taken to preserve the military capability.

(2)

For that same reason, the creation of long-term civilian dependence on EUled military resources should be avoided. Once provided, withdrawal or
reduction of resources could be difficult as it may strain civil-military
relations, retard the growth of civil authority and may cause lasting damage
to public confidence in the EU-led CMO.

Concentration
Military assets and capabilities available for CIMIC activities are likely to belimited; therefore they should be concentrated on tasks of the highest priority as
dictated by the mandate and/or mission. The decision concerning the prioritisationof CIMIC assets needs to be closely co-ordinated with the participating States inthe EU-led CMO.

7106/02

WP/mm
EUMS

13

EN

e.

32.

Legal obligations and humanitarian considerations(1)

EU-led military forces and HQ have a legal responsibility to comply with all
relevant international agreements relating to the law of armed conflict andhuman rights. They should seek, within the constraints of the mandate or
mission, to support and to reduce the effect of military operations on noncombatants. This is fundamental to consolidate mission legitimacy. The useof military force, with few exceptions, entails human suffering which should
be relieved whenever possible and wherever it is found. Human rights ofindividuals and groups must be respected and protected in compliance withinternational law. In addition the gender perspective should bemainstreamed into all CIMIC related activities.

(2)

Throughout the Petersberg mission spectrum and whenever the EU-led
military force is tasked to provide humanitarian assistance, the overall
principles of humanity and impartiality will be considered.

(3)

CIMIC has an important advisory, educational and information role in all
aspects related to the civil environment, including humanitarianconsiderations.

Guiding principles governing the civil-military relationshipa.

This second set of guiding principles offer guidance on the establishment andmaintenance of relations between the EU-led military forces and the civil
environment.

b.

They are implemented through CIMIC framework arrangements developed at the
EU political and strategic level (EUMC - EUMS) between EU and relevant
external civil organisations. They create in advance a practical co-operative
framework to be followed whenever the respective external civil actors and an
EU-led military force are involved in the same crisis.
The aim of these framework arrangements is twofold:

c.

d.

(1)

To describe the principles of co-operation between Commanders of EU-led
CMO and external civil organisations.

(2)

To offer guidance and to set standards for the co-operation between the
military force for a specific EU-led CMO and the external civil actors.

These arrangements should cover co-ordinated civil and military CIMIC planning,
the co-ordination between EU military activities and external civil actions in acommon theatre of operations, the co-ordination of EU military activities insupport of civil actions and the co-ordination of civil related activities performedby the EU-led military force.

7106/02

WP/mm
EUMS

14

EN

e.

Based on these framework arrangements, detailed procedures and mechanisms for
CIMIC related aspects of a specific EU-led CMO are to be developed at Operation
Headquarters (OHQ) level and below; they are to be included in the respective
military plans, directives and procedures.

f.

Guiding principles
(1)

(2)

(3)

Co-ordinated civil and military CIMIC planning(a)

As military and civilian activities in the operation area will affect eachother, the appropriate external civil organisations should - within thelimits of security - be involved as early as possible in the preparation,planning and execution of CIMIC activities and vice versa.

(b)

In the event of a crisis, co-ordinated civil and military CIMIC
planning could be preceded by joint pre-mission reconnaissance andassessment (EU Fact Finding Mission), which would allow early coordination with the in-theatre civil authorities and organisations.

Mutual support(a)During any EU-led CMO, it is paramount to obtain the support of the
IO, GO and NGO, as a useful leverage for the interface with theirlocal representatives and the local population. Civilian organisations
can be a valuable source of knowledge and expertise, especially whenthe military formation is tasked to perform civil related tasks. In
addition, civilian sources may often provide information on the civil
situation, which can influence the planning and execution of the EUled CMO. CIMIC elements should however not be used forintelligence gathering.

(b)

On the other hand, the EU-led military force may support the civil
environment by the provision of scarce resources and services(logistic support, transport etc.) and/or by creating a secureenvironment for the civil actions. These resources and services may
however not always be available and might be limited in terms ofquantity, quality and time.

Common goals
Whenever possible, common goals, to achieve unity of effort in response toa developing crisis should be established, recognised and integrated into the
EU military plans for CMO. In order to achieve this, a close link to theappropriate civilian agencies and organisations should be established on alllevels of command.

7106/02

WP/mm
EUMS

15

EN

(4)

Shared responsibility
The ethos, structure and working practices of the external civil organisations
with which military forces in EU-led CMO must co-operate, are extremely
diverse. A common analysis and understanding of the situation should leadto an agreed sharing of responsibilities if a durable and mutually beneficial
relationship is to be established and maintained.

(5)

(6)

Transparency(a)Successful CIMIC activities require the mutual trust and confidence of
those involved. CIMIC in all its aspects should be transparent,
demonstrating competence, capability and resolve in order to win thetrust and confidence of the civil environment. The possible tension
between the civil and military might lead to confusion andmisunderstanding at times, being potentially aggravated by perceived
political bias, media inaccuracy or distortion and poor communication.
Transparency is vital in preventing and defusing such potentiallyvolatile situations, because it instils trusts, increases confidence andencourages mutual understanding.

(b)

CIMIC elements will be valuable sources of information and will be
advocates of the military cause, but they will rapidly become
ineffective as such if used for intelligence gathering.

(c)

It must be recognised that military information cannot always beshared with civilians. On the other hand, such information could allow
civil organisations to tailor themselves to the developing situation andthereby enhance the overall effectiveness of the CIMIC effort.

Consent
Although not ultimately necessary, every effort should be made to secure
the willing consent of external civilian organisations and local populations
with which the EU-led military force is dealing.

(7)

Communication
Effective communication with civil authorities, external organisations andpopulations is vital to maintaining consent and co-operation. Civilian
organisations, with which the EU-led military force is dealing, will to alarge extent, preserve their own priorities. Indeed, some may take the viewthat co-operation with the military forces and their own independence ismutually exclusive. The key to minimise these difficulties is to maintain
open and constant communication.

7106/02

WP/mm
EUMS

16

EN

(8)

Cultural awarenessA sustained sensitivity towards local customs, mores, cultures and ways oflife is of fundamental importance to EU-led CMO and is an importantfunction of CIMIC.

K.

CIMIC TASKS
33.

34.

Generala.

CIMIC covers a wide range of tasks throughout the different phases of the EUcrisis management process.

b.

A specific CIMIC task can be executed in several phases of this process and atdifferent levels, although its intensity and function will depend on the respective
phase, level and the envisaged civil counterpart.

CIMIC tasksa.

b.

Planning(1)

The impact of factors relating to the civil dimension of an EU-led CMO
should continuously be assessed in the routine phase and during the entire
crisis management process.

(2)

Planning related tasks include:(a)Development and maintenance of conceptual, planning and procedural
CIMIC documents:
CIMIC concept.
CIMIC (framework) arrangements.
CIMIC Supporting Plans (SUPLAN), SOP and directives.

(b)

Development of interoperability standards and procedures to achieve a
CIMIC capability that will meet joint and combined needs and enable
the integration of national capabilities.

(c)

Participation in the development of Civil-Military Co-ordination at thepolitical and strategic level.

(d)

CIMIC input to the EU military strategic and operational planning.

Advice
CIMIC elements have an important advisory role during any phase of the crisis
management process. CIMIC elements at all levels will offer clear advice on
appropriate actions to ensure constructive civil-military co-operation and, on how
an EU-led CMO and the civilian population and institutions will affect each other.

7106/02

WP/mm
EUMS

17

EN

c.

Education and Training
CIMIC elements are responsible for the production of information to ensure that
EU military planners and military forces in EU-led CMO are prepared with an
overall background knowledge on the civil-military environment.

d.

Communication
Effective co-operation between the civil and military is only possible if there is aconstant communication at all levels. A pro-active relationship between civil andmilitary counterparts should be established, maintained and improved where
possible.

e.

Information exchange
CIMIC provides up to date information on civilian organisations in general andspecifically on the area of operations. Civilian sources will often provide
additional information of military relevance. Conversely, CIMIC can be used,within security limitations, to provide civilian organisations with similar
information on the military organisation and in the event of a crisis, of its planned
operations.

f.

Co-ordination(1)

Given differing mandates, cultures and perceptions, there will be apermanent requirement to co-ordinate activities to ascertain that congruent
long-term goals are ensured. CIMIC supports the commander's function topromote co-ordination of activity between the EU-led force and the external
civil organisations, local population and authorities.

(2)

Co-ordination of external civil and military activities will help to achieve agreater external civil-military unity of effort, prevent duplication andredundant CIMIC activities and conserve valuable resources. Although notalways feasible, common and properly co-ordinated civil-military concepts,
guidance, SOP and compatible structures should be sought.

(3)

If feasible, the geographical areas of responsibility of the military force inEU-led CMO and key civil organisations should coincide. Common
boundaries will facilitate a better common analysis and understanding of thesituation and so drive more appropriate CIMIC activities. If possible andwithin security constraints, military HQ for EU-led CMO or command
elements should be located together with or near key civil authorities or HQ.

(4)Inter-agency meetings further enhance mutual efforts of the EU-led militaryforce and civil actors.

(5)

The exchange of liaison officers between the EU-led military forces andcivil key organisations enhances communication, allows rapid disseminationof information and establishes a focal point for enquiries.

7106/02

WP/mm
EUMS

18

EN

g.

Arrangements
Mutual civil-military support must, in most cases, be the subject of CIMIC(framework) arrangements. The EUMS is responsible for drafting and monitoringsuch CIMIC arrangements, which define in advance a direct relationship or
understanding between the military Commander for EU-led CMO and an external
civilian authority.

h.

Agreements
CIMIC elements can support the drafting of formal agreements covering othermilitary aspects (Memorandum Of Understanding (MOU), technicalarrangements…) to underpin the civil-military co-operation.

i.

j.

Transition and termination activities(1)

Transition is the process that leads to the conclusion of the EU-led military
CMO. It aims at a smooth and seamless hand-over of civil related activities
to the proper, mandated authorities. The number of civil related tasks
undertaken by the military force will have an effect on the transition of thesetasks to the appropriate civil authority.

(2)

As appropriate, CIMIC elements will assist the appointed civil authorities.
As the military reduces in numbers and in the scope of its responsibilities,
CIMIC elements will continue to assist in the transfer of civil related tasks
executed by the military force to the appropriate civil authority. CIMIC
functions that are no longer necessary due to the gradual stabilisation of thecrisis area will cease.

(3)

Finally, CIMIC input to the "Lessons learned" process is required, once theEU-led CMO has been terminated.

Assessment
Continuous assessment of the civil environment in all its aspects, is a key role of
CIMIC. It is this assessment that will form the basis upon which the requirement
for and execution of additional CIMIC tasks and any civil-military activities will
be determined, together with the advice given to the Commander for EU-led
CMO.

k.

Implied tasks
Based on the decisions taken by the Council with regard to the mandate andmission of the EU-led CMO, the execution of the CIMIC tasks as explained above
might imply other CIMIC tasks, which might include:(1)

Provision of services or facilities to meet immediate life sustaining needs.

7106/02

WP/mm
EUMS

19

EN

(2)

Monitoring, evaluation, analysis and review of implemented CIMIC tasks todetermine and enhance their efficiency and effectiveness and to ensure that
CIMIC objectives are met. This is especially important when HNS is poor
or non-existent and when the international community assumes functions ofgovernment.

(3)

In close co-ordination with the medical staff, co-ordination of the medical
assistance to the local population.

(4)

Monitoring and control of CIMIC activities, especially those where local
contractors are involved.

(5)

Where possible, harmonisation of civil and military tasks performed intheatre.

(6)

Provision of expertise.

(7)

Liaison and contacts.

(8)

Relations with civilian resource and service providers.

(9)

CIMIC reports and updates.

(10) When required by the mandated civil authority, co-ordination of specific intheatre civil related tasks in view of (examples):(a)Security.

(b)(Re) construction.

(c)

Humanitarian aid.

(d)

Evacuation plans.

(e)Refugees (camps).

(f)

Displaced persons.

(g)Civil protection.

(h)Nation building.

(i)

Police missions.

(j)

Law and order.

(k)

Civil administration.

In view of the application of the different civil and military instruments inthe EU, the mandate and the mission of the EU-led military force should
clearly identify which of the possible implied tasks may need to be
executed.
7106/02

WP/mm
EUMS

20

EN

L.

CIMIC STRUCTURE - RESPONSIBILITIES
35.

Permanent CIMIC structuresa.

European Union Military Staff (EUMS)(1)The EU Military Staff develops and executes the required CIMIC tasks at
the political and strategic level.

(2)

Responsibilities(a)

General-(b)

Crisis-b.

Initiate the development of concepts and procedures in the fieldof CIMIC.
Support and participate as directed in the development of CivilMilitary Co-ordination within the field of CIMIC.
Co-ordinate and liase with relevant external international (civil)organisations regarding CIMIC, including development offramework arrangements.
Organisation of and chairing the European Union CIMIC
Conference (EUCC).

Introduce CIMIC aspects in the EUMS crisis response planning
as appropriate.
Consult on CIMIC aspects with EU Member States, third
countries, potential HN and relevant external civil organisations
and authorities.
Liase with the OHQ in the field of CIMIC.

European Union CIMIC Conference (EUCC)(1)

Organised and chaired by the EUMS (Chief of CIO Branch), the EUCC
creates a pro-active forum on CIMIC issues through the exchange of
information, consultation and co-operation among the EU military and civil
actors, MS and relevant external civilian organisations. It aims at fosteringclose collaboration and promoting synergy and harmonisation in CIMIC
matters and may support the EUMS in the development of EU CIMIC
related conceptual and procedural documents (Concept, SOP, frameworkarrangements, etc.). In addition it will promote CIMIC standardisation andinteroperability among MS and relevant external civilian organisations.

7106/02

WP/mm
EUMS

21

EN

36.

(2)

CIMIC experts of the EUMS and EU Member States and, if appropriate,
representatives of the Commission and relevant Council Secretariat Services(DG E, PU, Legal service) as well as representatives from non-EU Member
States1 and relevant external organisations (UN, OSCE, NATO, NGO etc.)
may be invited to the meetings. EUCC will convene as appropriate or uponrequest from MS.

(3)

The outcome of proceedings will be reported to the EUMC via DGEUMS.

CIMIC structures activated for a given EU-led operationa.

b.

Preliminary remarks(1)

The military involvement in a given crisis is totally situation dependent. The
supporting CIMIC structures should therefore be flexible and simple. Thus,
the structures described below are only indicative. They can be activatedand deactivated, adapted or omitted in accordance with the actual needs. In
addition, CIMIC will be embedded within the respective staff structures insuch a way that it will meet the actual operational requirements withmaximum efficiency.

(2)

Most often the EU-led CMO will start later than political, humanitarian andother efforts, since a military involvement is only one of the possible
instruments in response to a crisis, and due to the time required for the force
generation process. Consequently, civilian structures might already exist
which are providing the necessary co-operation and co-ordination services.
The EU-led military force should then liase with these structures and, in
consultation with them, decide whether the creation of separate military
CIMIC structures is required or not.

(3)

Representatives from external organisations (relevant civil organisations,
OSCE, NATO, etc) may be invited to participate in the military CIMIC
structures, as appropriate.

CIMIC elements at OHQ level
The EU Operation Commander (OpCdr) is the overall authority for the executionof CIMIC in the operation. Under his authority and in close co-ordination with theother Staff elements, OHQ CIMIC Staff elements (normally the CJ-9) will betasked to:1(1)

Prepare the CIMIC input to developing the OPLAN, including any
necessary specific CIMIC sections.

(2)

Develop CIMIC tasks and responsibilities for the Force and Component
Commanders.

Those States could include non-European members of NATO, those States who have applied
for accession to the EU or other States who entered into dialogue with the EU.

7106/02

WP/mm
EUMS

22

EN

c.

(3)

Co-ordinate the use of CIMIC capabilities made available by national
authorities for shared or co-operative use.

(4)

Act as the primary point of contact for co-ordinating civilian and militaryactivity at OHQ level.

(5)

Monitor the overall CIMIC situation and provide relevant information to themilitary and civilian actors involved in the crisis.

(6)

Liase with the EUMS.

CIMIC elements at FHQ level(1)

Once the Force Commander (FCdr) has been appointed, supporting CIMIC
structures, such as a CIMIC Group, CIMIC Task Force or any other CIMIC
structures, can be activated under his authority, comprising elements to
execute the Force Headquarters (FHQ) CIMIC tasks, and elements for thefulfilment of specific in-theatre CIMIC tasks.

(2)

Responsibilities(a)

FHQ CIMIC Staff elements-(b)

Tactical CIMIC elements-d.

Implementation (through the FHQ CIMIC Group if created) ofappropriate CIMIC policies, concepts, tasks, responsibilities andprocedures.
Development of CIMIC plans.
Advising the OHQ of required changes regarding CIMIC.
Representation in Civil-Military Commissions and in HN
CIMIC structures (if created), as required.

Provision of CIMIC support elements to subordinate commands.
Provision of functional specialist support.
Creation and running of CIMIC centres if required.
Execution of the FCdr CIMIC plan through the conduct of
CIMIC activities.

CIMIC elements at Component Commander level
CIMIC resources will usually be placed under operational control of the Land
Component Commander (LCC). The delegation of CIMIC responsibilities to the
LCC should be specified in the Operation Plan (OPLAN).

e.

CIMIC elements in subordinate formations or units
Subordinate formations or units must create and maintain a CIMIC capability toallow the execution of the assigned CIMIC tasks.

7106/02

WP/mm
EUMS

23

EN

f.

CIMIC Centre(1)

CIMIC Centres will be created as required, subject to agreed CIMIC(framework) arrangements, under the overall responsibility of the FCdr.
They are tailored to assist in anticipating, facilitating, co-ordinating andproviding those military functions and activities pertaining to the civil
population, local government, economy and infrastructure in areas where an
EU-led military force is deployed. They are organised at all levels in thearea of operation depending on the situation and usually outside the military
installations.
A CIMIC Centre is a capability, which facilitates the access to the EU civil
actors, civil population, civil authorities, IO and NGO in the area of
operations. It may be composed of military and/or civilian representatives
from different agencies. As such it is neither a military organisation nor adecision making authority.
At least one CIMIC Centre should be collocated with the civil Lead Agency
if any, to provide information on the situation and to co-ordinate EU CIMIC
plans and projects with IO, NGO and UN agencies.
These Centres also have an important role in familiarising civilian actors
and local population with military comportment, rules and procedures and to
explain their rationale.

g.

(2)

The OpCdr may decide to create a special CIMIC centre at OHQ level withspecific tasks and responsibilities.

(3)

Responsibilities(a)

Initial points of contact and liaison to facilitate harmonisation of
military and civil agencies’ activities.

(b)Within security restraints, to promote transparency of the military
operation among involved parties, through briefings, meetings, andmedia contacts.

(c)

Provide information on issues dealing with freedom of movement,
CIMIC plans and projects, the general situation in the concerned area,
the military activities and security aspects.

(d)Advice on the availability and mechanisms of military assistance tocivil organisations.

Civil-Military commissions
Should Civil-Military Commissions or similar organisations be set up, the EU
FHQ should liase with these structures as appropriate.

7106/02

WP/mm
EUMS

24

EN

h.

CIMIC Lead Nation
In general the required CIMIC assets for an EU-led CMO will be developed by aforce generation process. However, an EU Member State may assume theresponsibility for providing the CIMIC support for all or part of the EU-led force(third countries included), subject to agreement between the Member States (third
countries) involved.

M.

1

CIVIL ORGANISATIONS1
37.

Civil organisations are responsible for a wide range of activities. It is critical that
CIMIC elements fully understand the mandate, role, structure, methods and principlesof these organisations to establish an effective relationship with them.

38.

More details on the types of these organisations and the factors that might be considered
to identify those organisations with whom the EU-led military force should co-operate,
are at annex B.

Reference is made to non-EU civil bodies.

7106/02

WP/mm
EUMS

25

EN

ANNEX A

CIVIL-MILITARY COOPERATION CONCEPTFOR EU-LED CRISIS MANAGEMENT OPERATIONSABBREVIATIONS
CEP
CFSP
CIMIC
CIO
CML
CMO
DG E
DGEUMS
ESDP
EU
EUCC
EUMC
EUMS
FCdr
FHQ
FPG
HN
HNS
HQ
ICRC
Info Ops
IO
LCC
MOU
NATO
NGO
OHQ
OpCdr
OPLAN
OSCE
PU
SCE
SG/HR
SOP
STF
SUPLANUN

7106/02
ANNEX A

Civil Emergency Planning
Common Foreign and Security Policy
Civil-Military Co-operation
CIMIC and Information Operations
Civil-Military Liaison
Crisis Management Operations
Direction Generale Relations Exterieures
Director-General EU Military Staff
European Union Security and Defence Policy
European Union
EU CIMIC Conference
European Union Military Committee
European Union Military Staff
Force Commander
Force Headquarters
Functional Planning Guide
Host Nation
Host Nation Support
Headquarters
International Committee of the Red Cross
Information Operations
International Organisations
Land Component Commander
Memorandum Of Understanding
North Atlantic Treaty Organisation
Non-Governmental Organisations
Operation Headquarters
Operation Commander
Operation Plan
Organisation for Security and Co-operation in Europe
Policy Unit
Support to the Civil Environment
Secretary-General/High Representative
Standing Operating Procedures
Support To the EU-led Force
Supporting Plan
United Nations

WP/mm
EUMS

26

EN

ANNEX B

CIVIL-MILITARY COOPERATION CONCEPTFOR EU-LED CRISIS MANAGEMENT OPERATIONSCIVIL ORGANISATIONSGENERAL
1.

Civil organisations are responsible for a wide range of activities which encompasses
humanitarian aid, human rights, protection of minorities, refugees and displaced persons, legal
assistance, medical care, reconstruction, agriculture, education, arts, sciences and generalproject funding. They are increasingly numerous and sophisticated and in any potential theatreof operations could be numbered in their hundreds. They generally remain strongly
independent from political control in order to preserve their autonomy and effectiveness. In
many cases their impartiality can be of crucial importance in rebuilding relations whenpolitical dialogue has broken down. They are normally highly professional in their field, wellmotivated and prepared to take physical risks in difficult conditions. It is the task of CIMIC
elements in EU-led CMO to explain the role, structure and methods of these organisations inorder to avoid misunderstandings that could undermine relationships.

2.

Any EU-led CMO will be highly complex if challenged by integrating military operations
with political, economic and humanitarian assistance programmes, in addition to addressing
the divergent interests of former warring factions.

3.

Every civil organisation has a clear and definite role based on their charter, skills andcapability. An important CIMIC task is to identify the role of each of them in order to avoid
duplication or gaps. Every effort must be made to achieve unity of effort.

TYPES
4.

International Organisations (IO)a.

IO, such as the various UN agencies and the OSCE, are established byintergovernmental agreements and operate at the international level.

b.

Separate mention should be made of the International Committee of the Red Cross(ICRC) which was not established by intergovernmental agreement. The ICRC is an
impartial, neutral and independent organisation whose exclusively humanitarian mission
is to protect the lives and dignity of victims of war and internal violence and to provide
them with assistance. It directs and co-ordinates the international relief activities
conducted by the International Red Cross and Red Crescent Movement in situations ofconflict and their aftermath.

7106/02
ANNEX B

WP/mm
EUMS

27

EN

5.

6.

Non-Governmental Organisations (NGO)a.

NGO are voluntary organisations that may be provided with financial support bygovernments. They are primarily non-profit organisations that are independent ofgovernment, international organisations or commercial interests. They are legallydifferent from UN agencies and other IO in that they write their own charter andmission.

b.

The HN will usually accredit them before being authorised to operate within the
country. However, some NGO may not be accredited, which can create local tensions.

International and National Government Donor Agencies
These agencies have responsibilities for the funding, monitoring and evaluation ofdevelopment programmes, which should ideally be co-ordinated by the lead IO.

7.

Within the above generic types, the following groupings are also important to note:a.

Civil Development Agencies
Some civil organisations are concerned mainly with reconstruction. They will haveallocated resources to plan and develop projects throughout the affected area on thebasis of need. The CIMIC task is to identify the requirement for reconstruction together
with the mandated authority to assist the organisations in planning and executing theirprojects.

b.

Human Rights and Democratisation Agencies
These agencies seek to protect human rights in states where abuses may be rampant.
They seek to instil democratic values and the rule of law at all levels of governments

RELEVANT CIVIL ORGANISATIONS
8.

Given the vast range of civil organisations, it is practically impossible to co-operate with eachof them. Therefore a selection of the most relevant external organisations is required. In caseof an EU-led CMO, each military level has to identify which of the civil organisations is themost complementary to its activities, working areas, priority list etc.

9.

If appropriate, the external organisations best suited for co-operation with the EU-led force
will be designated by the political authority in charge of the EU-led CMO.

7106/02
ANNEX B

WP/mm
EUMS

28

EN

10.

As a general guide, the following factors might be considered, to identify those organisations,with whom the EU-led military force should co-operate:a.

Administrative and financial management capacity.

b.

Technical and logistical capacity in relation to the operation.

c.

Experience.

d.

Results of previous operations carried out by the organisation.

e.

Readiness to take part, if needed, in co-ordination/co-operation systems, such as this
CIMIC concept.

f.

Impartiality.

7106/02
ANNEX B

WP/mm
EUMS

29

EN