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The following guidelines were developed by the MONUC CIMIC Unit, OCHA and
MONUC HAS, with the contribution of the UN Country team in the DRC, other civil
components of MONUC, in-country humanitarian donors and INGOs – both Kinshasa
and field based.
This document aims at improving the interaction between the MONUC peacekeeping
force (MONUC military) and the humanitarian organizations.
2. Principle of cooperation
3. Principle of distinction
7.1. OCHA
7.2. MONUC HAS
7.3. MONUC CIMIC
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B. OPERATIONAL GUIDELINES
2. Coordination
7.1. Generalities
7.2. WHAMS
7.3. Humanitarian operations carried out by military in exceptional circumstances
7.4. Protection of civilians
8. Training
MONUC’s mandate is extremely vast. Hereafter are only underlined some aspects
which may specifically cause interaction between MONUC military and humanitarian
organizations. It should be emphasized that UNSC resolutions often confer
attributions to MONUC in general terms, without specifying whether these tasks
should be implemented by its military, its police or its civilians components. The
elements of the mandate mentioned hereafter can be considered as part (but non
exclusively) of MONUC military competences.
MONUC has to ensure the protection of civilians under imminent threat of physical
violence3. If the imminent threat of physical violence is caused by armed groups
(foreign or Congolese), it is allowed to use all necessary means to deter these threats4.
It may notably use cordon and search tactics to prevent attacks on civilians and
disrupt the military capability of illegal armed groups to use violence5. Yet, all
necessary means can only be used within MONUC capabilities and in the areas where
its armed units are deployed6.
MONUC has to assist in the promotion and protection of human rights, with particular
attention to women, children and vulnerable persons, investigate human rights
violations to put an end to impunity, while working closely with the relevant agencies
of the United Nations.
1
RSC 1565
2
RSC 1565
3
RSC 1565
4
RSC 1592
5
RSC 1592
6
RSC 1592
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MONUC has the mandate to contribute to the improvement of the security conditions
in which humanitarian assistance is provided. It must ensure protection of
humanitarian personnel under imminent threat of physical violence, as well as ensure
protection/security and freedom of movement of United Nations personnel, and
protect UN facilities, installations and equipment.
MONUC has to assist in the voluntary return of refugees and internally displaced
persons7.
f. DDR(RR)
More specifically in DRC, the humanitarian strategy aims at saving lives and at
reducing vulnerabilities. Humanitarian assistance may address needs at the individual,
family or community level.
7
RSC 1565
8
RSC 1565
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2. Principle of cooperation
Cooperation between MONUC military and humanitarian actors is made necessary by
the close interrelation of the respective actor’s role in protection and assistance
activities.
3. Principle of distinction
Yet, based on these considerations, it should be recognized, at the same time that
there should always be a clear distinction between peacekeeping military and
humanitarian actors. Maintaining this clear distinction will allow each group of
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actors to perform tasks where they have the best experience, knowledge and
capabilities. Therefore, this principle of distinction should not be seen or brought
forward as a disagreement by humanitarians with the Force’s action, but rather as a
way to find any possible avenues to carry out humanitarian activities in emergency
situations, which is also a common goal of MONUC and partners.
In sum, maintaining a clear distinction between the roles and function of humanitarian
actors from that of the MONUC military is therefore the determining factor in
creating an operational environment in which humanitarian organizations can
discharge their responsibilities both effectively and safely.
This is the essential dialogue and interaction between civilian and military actors in
humanitarian emergencies that is necessary to protect and promote humanitarian
principles, avoid competition, minimize inconsistency and, when appropriate, pursue
common goals.
b. Complex emergency
c. Humanitarian organizations
Humanitarian action is guided by many principles. The most important are the three
following: humanity, neutrality and impartiality.
b. Sustainability
c. Targeted assistance
d. Accountability
Those who implement humanitarian action must be held accountable to the victims
they are seeking to assist. They must ensure that assistance has an appropriate impact.
f. Transparency
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Practcally, very few actors can presently have direct access to FDLR.
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a. Interdependence
No single component or unit within the mission, no single agency or organization can
achieve the mandate on its own. The success of each component is a factor of the
contribution it makes to the achievement of the overall mission objective. In this
context, CIMIC is the process that ensures than individual units or organizations are
connected to a larger system of which they are part.
b. Duplication
c. Leverage
Together, military and other players can achieve more than each component would
have been able to achieve on its own.
7.1. OCHA
B. OPERATIONAL GUIDELINES
2. Coordination
CIMIC Officers, or if not present any designated MONUC officer, should attend the
periodical meetings organized by OCHA and HAS. They should also take part in the
meetings of the provincial protection coordination mechanism, if necessary with the
officer more specifically in charge of the protection of civilians (see hereafter under
7.4.
It flows from the general principle of distinction between humanitarian and MONUC
military activities mentioned under part A par. 3 here above that humanitarian should
not, as a matter of principle, share common premises with MONUC military.
It flows from the same general principle of distinction between humanitarian and
MONUC military activities that humanitarian should not, as a matter of principle,
carry out joint relief operations with MONUC military. However, it may happen that
joint operations be the only way to respond to urgent humanitarian needs. In that case,
these joint relief operations must respect the principles outlined below under guideline
5 on the use of military assets by humanitarians. The joint civil-military cooperation
should be determined by a thorough assessment of the actual needs on the ground and
a review of civilian humanitarian capacities to respond to them in a timely manner.
According to several resolutions of the Security Council, MONUC military has the
mandate to protect (…) humanitarian workers under imminent threat of physical
violence; MONUC military should also contribute to the improvement of the security
conditions in which humanitarian assistance is provided.
Humanitarians are the experts in the field of providing assistance and MONUC
military are in charge of ensuring protection. Dialogue is obviously necessary on the
best ways to reach these common objectives (area domination, temporary or
permanent presence in the field, opening and securing of humanitarian corridors,
establishment of a protected zone, if necessary military escorts or joint civil-military
operations etc…).
10
Definition: in simple terms, a military asset is any equipment that is owned by a contingent. For
example, a Sout Kivu Brigade truck for carrying troops is a military asset, as well as a North Kivu
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In a nutshell, the seven following standards are guiding the use of military assets:
c. A humanitarian operation using military assets must retain its civilian nature
and character. While military assets will remain under military control, the operation
as a whole must remain under the overall authority and control of the responsible
humanitarian organization. This does not infer any civilian command and control
status over military assets.
e. Any use of MCDA should be, as its onset, clearly limited in time and scale
and present an exit strategy element that defines clearly how the function it undertakes
could, in the future, be undertaken by civilian personnel.
g. Military assets that have been placed under the control of the humanitarian
agencies and deployed on a full-time basis purely for humanitarian purposes must be
visibly identified in a manner that clearly differentiates them from military assets
being used for military purposes.
attack helicopter. However, a MONUC chartered white helicopter piloted by civilians is not a military
asset and does not require the approval of the HC.
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Direct assistance is the face-to-face distribution of goods and services. Indirect assistance is at least
one step removed from the population and involves such activities as transporting relief goods or relief
personnel. Infrastructure support involves providing general services, such as road repair, airspace
management and power generation that facilitate relief, but are not necessarily visible to or solely for
the benefit of the affected population.
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7.1. Generalities
The principle of distinction which forms the base of the civilian-military relationship,
is clearly expressed under guideline 1 here above. There is an overarching need to
avoid confusion between peacekeeping military and humanitarian
agencies/organizations. This is within this framework that humanitarian activities can
be carried out by MONC military.
7.2. WHAM
WHAM are Winning Hearts and Minds Activities. Theses activities can be organized
by each unit, up to battalion level, and are funded by the own means or resources of
this unit. They intend to create a positive relationship between the different deployed
units and their host community.
c. WHAMS are best suited to the post-conflict or peace building phase when all
hostilities have come to an end.
WHAMS could be, for instance, developed in the following fields of action:
1. Infrastructure:
Rehabilitation of buildings (churchs, schools, clinics)
Reconstruction or maintenance of roads and bridges
3. Social services
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4. Economic activities
Rehabilitation of market
Training or other support in specific fields.
These operations should be necessary to meet urgent and critical needs of the
civilian population.
The military must stop its humanitarian operations and hand-over to the
humanitarian actors as the latter are able to return.
Protection of the civilian population is an overarching objective of the Mission and its
partners. Resolutions from the Security Council expressly call for a joint effort by
MONUC military and its humanitarian partners in this field. We refer on this topic to
what is mentioned under part A, par. 1 and 2. on MONUC’s mandate.
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As humanitarian and human rights players are also involved in protection activities, of
a different kind, close coordination is necessary in order to achieve consolidated
results. To achieve this aim, special coordination mechanisms (Joint protection
working groups or J-PROT) have being established at the provincial level (in the
East). Since the beginning of 2006, these groups are called Provincial protection
clusters (PPCs) at the provincial level and National protection cluster (NPC) at the
Kinshasa level. MONUC military is fully member of the groups which are chaired by
UNHCR and co-chaired by MONUC civilians. Terms of reference of the protection
clusters have been established and can be provided by UNHCR on request.
8. Training
Every new contingent or troops to the mission should be, upon arrival to the mission,
clearly briefed about the civilian component of MONUC as well as about the roles,
activities and principle of action of humanitarian agencies and organizations. The
same briefing should take place, in details, upon arrival at the place of duty. If
necessary, MONUC military should call on its civilian partners to help them in this
training.
Joint training sessions at field level should enable mutual understanding and allow in
a common sessions to reach objectives mentioned under 8.1 and 8.2 above. It could
also involve discussions on practical cases. See also hereafter 10. under
implementation.
Regular CIMIC reports should be sent by MONUC military offices, if necessary with
the input of MONUC-CAS.
Annual seminar
Annually, a CIMIC seminar should be held in order to review success and difficulties
in implementation of the present guidelines. If deemed useful, personel of the NGO
ACCORD should also be invited to the seminar.
Training seminars