Chapter 14
Non-government organisations
14.1
In this chapter, the committee's focus shifts to non-government
organisations (NGOs). The committee looks firstly at the role and function of
NGOs in peacekeeping operations and the pre-deployment training and preparation
of NGO personnel. In the context of peacekeeping operations, it then considers
the working relationship between the government sector and NGOs.
Role of NGOs
14.2
The role of NGOs in peacekeeping operations is very different from that
of the ADF or the AFP. NGOs engaged in humanitarian or development work are,
according to the Australian Red Cross, motivated by the objective of reducing
human suffering. It observed that these NGOs:
...are often engaged in a peacekeeper's 'area of operation' long
before military forces arrive, and often remain long after military and other
government forces retire. They are able to undertake their operations...on the
basis that they act in a neutral and impartial manner, and provide their aid on
the basis of need alone.[1]
14.3
The committee took evidence from a number of NGOs engaged in
humanitarian work, including World Vision Australia (WVA), Oxfam Australia, the
Australian Red Cross, Austcare and Christian World Service (CWS). Their
activities range from poverty reduction and local capacity building to conflict
and disaster relief.[2]
Humanitarian NGOs build relations across the local community, including
churches, women's groups and educational organisations.[3]
14.4
These unarmed NGOs work in conflict and disaster situations, often in
'some of the most dire humanitarian situations'.[4]
They are limited in the physical protection they can offer to their operations
and, according to Oxfam, 'are dependent on a base level of security to ensure staff
safety and the safety of the people who benefit from our programmes'.[5]
In many cases they work alongside Australian peacekeepers.
14.5
When considering their role in a peacekeeping operation, an important
feature of NGOs is that, although they subscribe to broad principles to relieve
human suffering, they are a diverse and heterogeneous group and approach a
peacekeeping operation from their own particular perspectives. Each has its own
charter, international affiliations, objectives, work culture and area of
operation. Because of their specific focus and limited responsibility, they may
not be in a position to appreciate the complexities of an operation as a whole.
Importance of pre-deployment training and education
14.6
As has long been acknowledged, training is also important to NGO
personnel.[6]
For example, Mr David Brown, Asia Manager, Australian Red Cross, noted that
peacekeepers with particular technical expertise, such as in water and
sanitation or food relief, do not necessarily have an understanding of international
humanitarian law nor of the preparation required for working in a complex
environment.[7]
Austcare noted that Australian NGOs have more to learn about UN doctrine and
procedures that apply to complex emergencies and peacekeeping. It observed that,
'It is too late and inefficient for NGOs to learn this in an ad hoc manner on
the ground when operations have commenced and people are most in need of
humanitarian assistance'.[8]
It is essential therefore that NGO personnel undergo appropriate preparation
for a peacekeeping operation.[9]
Preparation
14.7
While a number of NGOs commented on the efforts made by government
agencies to increase the skills of their peacekeepers, NGOs provided little
detail on the training of their own personnel.
14.8
The Australian Red Cross noted that Australian NGOs tend to recruit and organise
training for their peacekeepers.[10]
For example, the training program for WVA's global rapid response team, which
responds to major emergencies, includes components such as team building,
cultural awareness, and health and wellbeing.[11]
14.9
Austcare sends aid volunteers overseas through partnering with volunteer
organisations such as the Australian Volunteers International (AVI).[12]
AVI delivers pre-deployment training, including a three-day comprehensive
briefing on aid and development, capacity building, health and security advice,
and cultural effectiveness training. Their orientation program in-country may
include language training.[13]
14.10
The Australian Red Cross runs a compulsory six-day basic training course
for potential volunteers as part of the selection process, 'after which
successful applicants are placed on the database' to wait to go overseas. Participants
are taught about the Red Cross movement, international humanitarian law and the
work in the field.[14] Mr Robert
Tickner, CEO, Australian Red Cross, explained that the 'conduct of a basic
training course for delegates is a precondition to the International Committee
of the Red Cross accepting our people'.[15]
14.11
The Australian Council for International Development (ACFID) is the
umbrella organisation for Australian NGOs in the field of international aid and
development. It provides training and information services for its members,
including Red Cross, Oxfam and World Vision.[16]
According to ACFID, the training is tailored to meet the members' needs on
various topics, including communications and fundraising, governance, gender
equality, capacity building and evaluation.[17]
14.12
The Australian Red Cross informed the committee that although
'centralised' training is available through ACFID:
...there is no standard, accredited training that every person
from the variety of different NGOs will do.[18]
14.13
The committee also received evidence on NGOs developing joint training
programs. Mr Geoffrey Shepherd, Head, Humanitarian and Emergency Affairs, WVA, referred
to attempts to develop a joint training exercise involving NGOs.[19]
However, for the Australian Red Cross, joint training might not always be
feasible. Mr Tickner said:
Obviously we have pretty active dialogue with the major
agencies, and essentially good personal relationships. Whether or not we are
able to move to some common training is a bit problematical for us at least in
one sense, because the Red Cross and Red Crescent Movement has particular modes
of operation which are quite identifiably different from those of many other
agencies.[20]
14.14
The Australian Red Cross advised the committee that it is developing an
international humanitarian law seminar together with ACFID. It will concentrate
on 'the obligations and the rights of humanitarian workers in the field,
particularly under humanitarian law, and then to give broad guiding principles
similar to those in IHL [International Humanitarian Law]'.[21]
14.15
RedR Australia, a not-for-profit humanitarian organisation, delivers
training for many government and non-government organisations, such as Oxfam Australia,
Australian Red Cross, World Vision Australia and AusAID.[22]
Mr Shepherd acknowledged the role of RedR, indicating that it offers the main
humanitarian course in Australia and is funded by AusAID. It also conducts a
security training course, which runs over three to four days.[23]
14.16
In addition to domestic training, Ms Melanie Gow, WVA, explained that
there are international training opportunities for NGO staff:
There certainly are courses internationally that you can attend
through which you can be certified and recognised for your humanitarian
expertise and practice...But in Australia, to my understanding, it is much more
informal.[24]
14.17
While there are training opportunities in Australia and overseas for
NGOs involved in peacekeeping operations, they are neither mandatory nor fit
into a comprehensive preparation regime for the deployment of personnel to a
peacekeeping operation. For example, the Centre for International Governance
& Justice (CIGJ) at the ANU noted that Australian civilians are not
systematically recruited to peacekeeping operations but 'tend to find civilian
peacekeeping opportunities at their own initiative'.[25]
According to CIGJ, Australian civilian peacekeepers 'draw upon their own varied
personal experience and training in relevant fields'. It argued that 'Australia
should pay greater strategic attention to the training and development of
nationals involved in civilian peacekeeping activities'. In its view, the
establishment of a centre of excellence for civilian peacekeeping in Australia would
provide an opportunity for Australian government agencies to offer more
strategic support to civilian peacekeepers.[26]
Such an initiative would provide 'specialised civilian peacekeeping training'
and result in a more systematic training and support mechanism for civilian
experts likely to be involved in peacekeeping operations.
14.18
The committee has already briefly referred to the proposal for
establishing a joint education and training facility that would assist government
agencies prepare their personnel for peacekeeping activities. It would seem
sensible that such a facility would take account of the important role of NGOs
in peacekeeping. The proposal for a joint training facility is an emerging
theme in this report; it is mentioned later in this chapter and discussed in
greater detail in Chapter 25.
Committee view
14.19
The committee notes the important role that NGOs play in pre- and
post-conflict environments and commends their contributions to peace building. It
recognises that training is important to prepare civilian peacekeepers adequately
for their tasks. Even highly skilled technical experts from Australia require
effective pre-deployment training to carry out their duties in accordance with
international and Australian law and the operation's mandate. They should be
aware of security risks and other dangers they may face, and they should have
the skills to cope in a different cultural environment. The committee has concerns
that, in general, training is not compulsory and is not universally provided to
NGO volunteers.[27]
14.20
While some of the NGOs were critical of the training and lack of
cooperation and coordination of government agencies, they did not apply this
same standard to the NGO sector. The committee has noted that NGOs are not a
homogenous group and understands the difficulties they have in appreciating the
range of responsibilities, roles and functions of others participating in the
operation. The activities of an NGO affect not only other NGOs occupying the
same space but the range of government agencies performing tasks such as
providing security, enforcing law and order as well as building capacity.
14.21
The committee sees opportunities to improve NGO cooperation and
coordination in peacekeeping operations. It urges NGOs to develop joint
standards and training for these operations and to explore ways they can
cooperate with each other in the delivery of training. It believes that
Australian NGOs, under the guidance of ACFID, should review their training
programs with a view to establishing standards for training peacekeepers. The committee
encourages the government, through AusAID, to support the NGO sector in
developing these guidelines and implementing training regimes. It notes the
proposal for the establishment of an Australian centre of excellence for
peacekeeping.
14.22
Having noted the significant role of NGOs in peacekeeping, the committee
now considers how effectively government and non-government agencies coordinate
their activities in a peacekeeping environment. Given the weight of evidence
regarding civil–military cooperation, the committee examines the relationship
between the ADF and civilian sector in detail in the following chapter.
Government–NGO coordination
14.23
Modern peacekeeping operations with their broad range of tasks and activities
create significant coordination challenges for the government and
non-government sectors. NGOs are independent of government and their priorities
or objectives do not necessarily reflect those of government. Even so, they
often work side by side with government officials in a peacekeeping operation
and, in some instances, government and non-government agencies rely on each
other to deliver aid or assistance to local communities. It is important that
the efforts of all organisations—government and non-government—are coordinated
to achieve the best possible outcomes for those affected by conflict.
Importance of cooperation and coordination
14.24
The importance of coordination and cooperation between government and
non-government sectors in peacekeeping operations is widely recognised.[28]
Assistant Commissioner Walters stated:
...we are aware of the value of engaging with the NGOs and working
through an enhanced program of consulting NGOs so both of us have an
understanding of our roles and how we can assist each other more as we move
further into this area of work.[29]
14.25
AusAID stated that with the number of 'actors' involved in peacekeeping
operations, 'effective coordination and coherence is essential'.[30]
14.26
While submitters to the inquiry recognised the essential roles of
government and non-government organisations in peacekeeping operations, they
had different views about how effectively these organisations work together. In
this section, the committee looks at the interaction between the two sectors at
the strategic planning level and during pre-deployment preparations. It
considers some of the pre-deployment activities designed to cultivate good
relations between government and non-government agencies engaged in
peacekeeping including joint planning, preparation and training.
Planning at strategic level
14.27
AusAID recognised that a fully consultative process between all actors,
including NGOs, is needed at the planning stage of a peacekeeping operation.
Such consultation ensures that:
...roles are well defined, and coordination mechanisms are
established, while preserving critical distinctions between roles of
contributing agencies (for example, maintaining a discrete level of
independence of humanitarian actors that will ensure safety of both aid workers
and those they seek to assist and encourage actors to maintain access).[31]
14.28
In the previous chapter, the committee noted the whole-of-government
framework for planning and coordinating a peacekeeping operation. It referred
to the National Security Committee of Cabinet (NSC) and the Secretaries Committee
on National Security (SCONS); the Strategic Policy Coordination Group (SPCG)
and standing interdepartmental committees (IDCs).
14.29
There is no formal arrangement for NGOs to be involved at this level of
planning. Even so, government agencies consult with NGOs prior to deployment.
For example, ACFID brings key people in the NGO sector to engage with
government agencies, including Treasury, Finance, AusAID and DFAT, at a
roundtable twice a year.[32]
Mr Shepherd, WVA, commented that these discussions have been very fruitful
for enhancing relations in the field.[33]
He explained that before the recent deployment to Solomon Islands, there was a
whole-of-government meeting with NGOs to look at the broader issues.[34]
14.30
While Mr March, AusAID, noted that NGOs are engaged in dialogue with
AusAID before a mission, he suggested the situation could be improved.[35]
Committee view
14.31
The committee notes that NGOs are not represented at the strategic
planning level. It believes that deliberation at the IDC level is rightly the
business of the government agencies that are able to speak freely and frankly
on matters strictly the preserve of government. Some NGOs, however, will have
local knowledge and an understanding of a particular conflict that should be
reflected in advice to government. The committee believes that relevant
government agencies must liaise with the NGO sector to ensure that this sector
forms part of an effective whole-of-nation response to a peacekeeping
operation.
Recommendation 13
14.32
The committee recommends that AusAID coordinate a consultation with
DFAT, Defence, AFP, ACFID and key NGOs to establish a more effective mechanism
for involving the NGO sector in the planning of Australia's involvement in
peacekeeping operations.
Joint preparation and training
14.33
Apart from that related to civil–police and civil–military cooperation, the
committee received limited information on the measures taken to develop links
and improve coordination between Australian government and non-government
agencies at the operational level. The committee starts its consideration with
the civil–police cooperation.
14.34
The AFP explained that it was looking to enhance its relationship with
NGOs. Assistant Commissioner Walters provided an example of the evolving types
of activities in which the AFP engages:
At a recent Austcare roundtable, the AFP had an opportunity to promote
and explain its work and to listen to different speakers on issues relevant to Austcare.
The AFP was also able
to discuss how it could cooperate more closely with Austcare to achieve greater
synergies in their work.[36]
14.35
Commissioner Keelty provided another example of the AFP's approach to
engaging with NGOs in order to gain from their experiences in the field. He referred
to working with 'some of the religious NGOs' and also recalled a meeting with
Greenpeace before deployment to Solomon Islands and how its local knowledge was
of value to the AFP:
...if you were to think about that for a minute, there are not too
many organisations in the world who have good intelligence networks on where
logging and corruption in logging camps has taken place.[37]
14.36
A number of NGOs are involved in coordinated AFP training through the IDG,
including the office of the UN High Commissioner for Refugees, Australian Red
Cross, Greenpeace and ACFID.[38]
ACFID, for example, has once a month for over two years briefed AFP officers
deploying to RAMSI. Ms Neva Wendt, ACFID, explained:
We try to impart some information about the development
challenges that face the Solomon Islands. We try to advise the police of who
they are likely to come across in the Solomon Islands...We try to give them an
idea of the views by civil society...of the RAMSI intervention.[39]
14.37
In addition, the Australian Red Cross provides ongoing training for the IDG.[40]
The Red Cross noted that the IDG provides an opportunity for it and other NGOs
to give presentations at IDG's training programs so that 'those deployed are
aware of the roles and mandates of these organisations'.[41]
In its view, the provision of such training to all involved in a peacekeeping
operation is invaluable if they are 'to fully understand the environment in
which they will be asked to operate'.[42]
14.38
AusAID informed the committee that together with government and
non-government partners, it continues to improve training and preparedness of
Australians for peacekeeping operations; however, the focus still appears to be
an informal process.
14.39
In its submission, the Australian Red Cross referred to a recommendation
made by the Joint Standing Committee on Foreign Affairs, Defence and Trade in
1994 that humanitarian and other organisations should be involved in general
and pre-deployment training. The Red Cross observed that while NGOs are
involved in joint training, it 'does not appear to be a uniform practice'. Overall,
it found that apart from the IDG course, which all deploying AFP personnel must
attend, other training programs target only a limited number of personnel who
may be deployed. It concluded:
The vast majority of a peacekeeping contingent is therefore unlikely
to have a clear understanding of the humanitarian organisations and their
legitimate roles in the area of operation. This raises squarely the need for
more uniform training of all Australian personnel deploying on peace
operations.[43]
14.40
The Australian Red Cross advised the committee that it was not involved
in training other government departments and agencies, although it would be
interested in pursuing other collaborative arrangements.[44]
It indicated that it 'would support a review of the scope and effectiveness of
training available to all agencies and personnel deployed on peace operations'.
It made clear it needed to be involved in that training and pre-deployment
briefings.[45]
14.41
The committee also heard from a number of universities that offer
various courses or are undertaking projects relevant to peacekeeping. The four
main peace studies centres are based at the University of New England, the University
of Queensland, the University of Sydney, and more diffusely within the Australian
National University.[46]
The committee believes that such institutions could be included as part of a
whole-of-nation approach to preparing Australian peacekeepers for deployment.
Committee view
14.42
The committee considers it important that ample opportunities are
available for NGOs and government agencies to share knowledge, ideas and
concepts and to develop mutual understanding and appreciation of each other's
work. It believes that having NGOs as regular presenters in pre-deployment
briefings, seminars or training courses run by government agencies, as well as
inviting them to participate in training exercises or workshops, should become
a standard feature of the government's pre-deployment training regime.
14.43
The committee believes that there is scope for both DFAT and AusAID to improve
cooperation and coordination between the two sectors especially by extending
activities beyond briefings to joint training and collaborative planning. It
commends the AFP's commitment to involve NGOs in its training programs and to
explore opportunities to cultivate stronger links through pre-deployment
engagements. The committee supports the AFP in these endeavours. NGOs should
also be actively pursuing ways to build stronger relations with the government
sector.
Recommendation 14
14.44
The committee recommends that a whole-of-government working group, such
as the Peace Operations Working Group, arrange to hold regular meetings with
representatives of NGOs engaged in peacekeeping operations to discuss and develop
training programs and courses that would improve their working relationship.
The committee recommends further that, in consultation with other government
agencies and relevant NGOs, DFAT and AusAID review this arrangement in 2010 to
assess the value to each organisation involved, and how it could be improved.
The results of the review would be contained in DFAT's annual report.
14.45
The matter of civil–military relations dominated the evidence concerning
government coordination with humanitarian NGOs. In the following section, the committee
provides detailed consideration of the coordination and cooperation between the
ADF and NGOs.
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