Cimic
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International Journal of Peace Studies, Volume 11, Number 2, Autumn/Winter 2006
THE PEACEBUILDING DILEMMA:
CIVIL-MILITARY COOPERATION IN STABILITY OPERATIONS
Volker Franke
Abstract
The nature of complex humanitarian relief, peacebuilding, and reconstruction missions increasingly
forces military and civilian actors to operate in the same space at the same time thereby challenging their
ability to remain impartial, neutral and independent. The purpose of this article is to explore the cultural,
organizational, operational, and normative differences between civilian and military relief and security
providers in contemporary stability operations and to develop recommendations for improving civilmilitary
cooperation (CIMIC) in order to aid the provision of more effective relief, stabilization, and
transformation operations.
At 8:30 a.m. local time on October 27, 2003 an ambulance packed with explosives
rammed into security barriers outside the Red Cross headquarters in Baghdad killing
some 40 people, including two Iraqi International Committee of the Red Cross (ICRC)
employees, and leaving more than 200 wounded. The ICRC announced immediately
following the attacks withdrawal of its international staff from Baghdad, thereby reducing
vital programs and services to the most vulnerable segments of the population. The
October suicide bombing came two months after the August 19 attack on the United
Nations (UN) headquarters in Baghdad that left 23 people dead, including Sergio Vieira
de Mello, the Secretary General’s Special Representative in Iraq. Expressing horror and
consternation, United Nations Development Programme (UNDP) head Mark Malloch
Brown surmised on the day of the August attack: “We do this [humanitarian relief] out of
vocation. We are apolitical. We were here to help the people of Iraq and help them
return to self-government. Why us?” (quoted in Anderson, 2004, p. 52).
The outrage felt by some members of the non-governmental organization (NGO)
community was not solely directed at the perpetrators, but also at the United States who
was held indirectly responsible for the deaths of the humanitarian aid workers. Members
of the UN and NGO communities felt they were endangered partly by the fact that the
U.S. was fighting a war that had not been authorized by the Security Council and that had
created a situation which had basically invited the attacks. Anderson (2004, p. 61)
6 The Peacebuilding Dilemma
explains, “those who attacked the UN were not mistaken as to their targets or what they
stood for. They understood both that the UN had stood aside from the US-led war but
also that the UN and NGO groups collectively are not neutral or impartial about the
nature of future peace.”
The attacks illustrate a growing dilemma in stability operations: post-conflict
reconstruction and humanitarian relief efforts force military and humanitarian actors to
operate in the same space at the same time challenging the bedrock principles that
characterized peacekeeping for more than half-a-century. Although the military has
consistently emphasized the need for “complementarity,” humanitarian organizations
have expressed concern about the impact of civil-military cooperation on their ability to
remain impartial, neutral, and independent in fulfilling their core tasks. As a result, the
lines between neutral peacekeeping and relief efforts and non-neutral peacebuilding and
reconstruction activities have become increasingly blurred, thereby raising dangers and
risks especially for civilian actors.
This article explores the cultural, organizational, operational, and normative
factors that shape the approaches of military and civilian nongovernmental (NGO) actors
to civil-military cooperation (CIMIC) in peacebuilding and stability operations. The
purpose of the analysis is to develop recommendations for improving civil-military
cooperation in order to aid the provision of more effective relief, stabilization, and
transformation operations. The first segment briefly recounts the evolution of
peacebuilding and illustrates the central problems inherent in civil-military cooperation
during Operation Enduring Freedom in Afghanistan. Next, the article examines more
closely the cultural, organizational, operational, and normative differences that hamper
coordination between civilian and military actors in the field. The analysis concludes
with a series of recommendations for how to improve civil-military cooperation and
enhance the effectiveness of international peacebuilding and reconstruction efforts.
The Evolution of Peacebuilding
Traditional peacekeeping during the Cold War was authorized under Chapter VI
of the UN Charter and most generally comprised the “imposition of neutral
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