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TRANSLATION OF THE SWEDISH CIMIC HANDBOOK

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Foreword
In previous missions under UN command, from 1950 and forward, has
Civil Military Cooperation been a natural part in Peace Support
Operations (PSO) but its role has not explicitly been described.

Through NATO’s increased involvement and role in Crises Response

Operations during the 1990’s, has CIMIC, as an important support to the
military Commander when conducting military operations, received
increased impact. The understanding of the civilian conditions and the
actors’ importance for execution of a military Crises Response Operation
has increased. Thereby is the need of a better way to notice and through
cooperation influence civilian actors when conducting the military
planning and execution. Within the military Crises Response Task Force
Staff is this a responsibility for their CIMIC branch.

This has lead to a more active search for definitions and doctrines to
clarify the purpose of, and deliver the basic platform of the design of,
cooperation between the civilian and the military resources in operation
in an area of Crises response.

Within the framework of the Peace Support Operations in Bosnia-

Herzegovina and Kosovo it has , at least in a formal way, been an
ambition within the multinational military force to strive for and apply a
common view on civil-military cooperation and its direction and
application to strategic, operational and tactical level. From a military
standpoint is the design of headquarters CIMIC-functions and their
activities to be concretized.

Even if a common, view is approved in principle within the mentioned

multinational force, it can be stated that in the practical application it is
differences between units from the various nations who have provided
with troops. This fact depends on the necessary pragmatic interpretation
of the common principles who a very complex and varying reality
expects, but even in a narrowed way, national interest will sometimes be
allowed to obstruct against i.e. the CIMIC concept request of
coordination. There are still obvious limitations reference the knowledge
of the purpose of the CIMIC function and the CIMIC related activities.

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Sweden and the Swedish Armed Forces is within the framework of the
PARP process supporting the NATO stated view of the CIMIC function,
a view which will be a standard procedure within the EU military Crises
Response Force. It is obvious and necessary that the Swedish Armed
Forces adopt the CIMIC concept in accordance to the interpretation that
is a fact in the multinational Crises Response Forces where the Swedish
overseas force is practicing lessons learned and national competence
within the area of civil-military cooperation. The CIMIC function, as well
as other military disciplines will in the future be under continuous
development and adjustments as new lessons learned are made.

This handbook is focusing primarily on the tactical level and the practical
application in the field. The purpose is to offer the CIMIC personnel of
the Swedish overseas force guidance from the lessons learned made until
now and the established view on the CIMIC function that exists within
Swedish units organised for NATO and EU’s Crises Response Force.

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Index
Summary...................................................................................................8
Purpose....................................................................................................11
Basics.......................................................................................................14
Civil Military
Cooperation.................................................................................21
Support to Civil functions
Support to Military operations
Command and Control
Instable civil infrastructure
Lack of infrastructure

Mission and functions...........................................................................30

Civil Military Cooperation
Support of the Society
Support of the Military unit
P re operation
Training
During operation
Transmission and settlement
Communications
Exchange of information
Coordination/Cooperation
Agreements
Assessments
Operations
Positions in the Headquarter
Connections to the Operational Centre
Connections to the Intelligence functions
Connections to the Logistic Centre
Connections to the Operations Planners
Connections to the Commander
Connections to the Legal Adviser
Connections to the PSYOPS
Connections to the Press and Information functions
Connections to the Medical service
Connections to the Military Police
Possible support to functions

Annex 1. Sources of information

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Annex 2. Cooperation
Annex 3. Interpretors
Annex 4. Reports
Annex 5. CIMIC Centre
Annex 6. Projects
Annex 7. Abbreviations and Acronyms
Annex 8. Compilation of essential organisations

Literature references..........................................................................103
Sources.................................................................................................105

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“ There is no greater sorrow on earth than the loss of one’s native land
and home....”

Euripides, 431 BC

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Summary
CIMIC is a military discipline within the frame of international Crises
Response. The concept contains the CIMIC headquarter function in a
multinational Crises Response Force and this function’s mission and
activities.

The definition of CIMIC in this handbook is as follows:

• CIMIC contains the CIMIC headquarter function in a multinational
Crises Response Force and to its related missions and activities.
• CIMIC guarantees the execution of the civil-military cooperation
which, within the frame of the overall aims of Crises Response

The CIMIC function is represented on strategic as well as on operational

as on tactical level. The function’s mission is to, based on its area of
competence, in an early stage participate in the planning process of the
military concept of operation and during execution be responsible for
coordination and cooperation with civilian authorities and organisations,
as the military execution requires. Finally is the function to actively
participate in the preparations of the settlement of the military
operation.

The direction of CIMIC work varies according to the circumstances in the

area of operation. When the situation requires a Crises Response Task
Force would likely, in addition to the regular military tasks, during a
transition stage, be forced to take care of certain vital functions of the
society and construction of infrastructure. However, the ambition should
be to as soon as possible transfer the actual responsibility to civilian
organsiations or national actors, so that no more military strength is tied
up than needed.

The use of military resources for executing civilian missions should

always be limited concerning proportions and time so that the freedom of
action with own resources is secured and that the capability to execute the
main military mission is not challenged. The efforts are accordingly not
to be executed in such way that the military forces will take over and in a
long term execute civilian missions.

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In the handbook’s two initial chapters are a basic background presented,

addressed to Commanders. The annexes are addressed to officers in
positions at Brigade and Battalion level and is aiming to detailed
knowledge.

The reader is recommended to use the directions in the end of the

handbook to increase the understanding of the complex environment of a
mission which is covered in the two initial chapters wherefrom the main
part of the book’s lessons learned are gathered.

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Purpose of the Handbook

The purpose of this Handbook is to offer temporary guidelines as command of
CIMIC-work in the overseas forces. The purpose is not to precise any definite rules,
instead it is to support with updated lessons learned of the mission areas and the
established view on the CIMIC function.

These guidelines shall offer the CIMIC appointed a structure of their work and base to
increase the effectiveness through utilise previous lessons learned.

The handbook shall not be taken as a regulation, instead it should support and guide.
The guidelines should always be used with judgement.

The handbook, which chiefly is to be used for CIMIC work on local (tactical) level is
written with the background of the former Yugoslavia.

When producing this Handbook CIMIC, the Danish Army Handbook in Civilian-
Military cooperation (HRN 810-025) has served as a model.

The objective is that the Handbook CIMIC should mirror updated Swedish knowledge
within the CIMIC area and the view on this function.

The handbook shall be a living document and be updated when changes in working
procedures are made or development of the Swedish commanding doctrines.

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“While I was serving with NATO force in former Yugoslavia, I

quickly came to conclusion that commander in complex peace
operations absolutely require a dedicated CIMIC capability....

This we have to concentrate on.”

Brigadier General Gunnar Lundberg
Commander, NORDPOL Brigade
Former Yugoslavia Dec ’96-Jun ‘97

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Educational part

Aim and objectives

A Peace Support Operation (PSO), which is agreed upon between i.e. UN and a State
in Crises, could be divided in two parallel faces, the Military and the Civilian face.

The lessons learned form Bosnia shows that the Military face is the one mainly is
contributing to the execution of an agreement.

The Civilian face will include difficulties, which has to be conquered. The Dayton
agreement was signed in December 1995 but in Bosnia is the civilian execution of the
agreement still struggling. The Civilian face is completely crucial if the mission will
be successful and for this is CIMIC an important headquarter function.

The aim and objectives concerning civilian-military cooperation (CIMIC activities) is

to create the best possible circumstances for planning and execution of a given
Military operation. This will be reached initially through establishing and preserve a
formal and structured cooperation between the Military force in theatre, the civilian
inhabitants, the civilian authorities and organisation within the area of operation. The
aim with the civilian-military cooperation is to create optimal circumstances which
will provide the military commander the best possible morally, materially and
tactically advantage. In a longer term the aim concerning CIMIC is to create and
preserve conditions to reach a lasting solution of the conflict in the area of operations.

The civilian dimension

The development after the Cold war and the character and span of armed conflicts,
have meant that planning and execution have been taking in a stronger consideration
the social, political, cultural, economical, environmental and humanitarian
circumstances. The military part should also take in consideration the appearance of
the presence of an increasing number of International (IO), governmental (GO) and
non-governmental

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(NGO) civilian organisations, who are acting as partners and actors in areas of interest
and operations.

These factors can be affected by the different culture missions and working
procedures of the involving military and civilian organisations. To optimise the joint
effort it is therefore necessary to establish and preserve efficient connections with a
variety of civilian institutions and organisations, which means with the ones who is
present within the area of operations or have influence on planned or ongoing
operations.

CIMIC is the tool of the military commander in this environment.

Page 1. The most important interface of CIMIC

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The need
CIMIC could be a central part of a mission. This fact is valid in disaster relief and
humanitarian assistance. It has to be presumed that the military force engaged often is
dependent of the cooperation with the civilian organisations in the area of operations
concerning the use of resources and exchange of information. The military force is
dependant of the civilian authorities to maintain law and order. The freedom of
movement in the area of operation is often being limited without such cooperation.
The establishing and maintaining of good relations are often an efficient mean to
prevent the potential opponent to achieve equivalent advantages. The best way to live
up to the military commanders responsibility of the civilian inhabitants is because the
cooperation is working well with the civilian authorities and with the international and
non governmental organisations operating in the area.

The Commanders assessment

Military success can often be achieved without using military enforcement, this
through the military commanders aim and means to be adapted to the civilian
situation in the mission area. This is especially valid during execution of Peace
Support Operations, when the civilian conditions could result in serious limitations. If
the adoption is not possible or asked for, e.g. in hostile area or in conjunction to a
rapid escalating conflict, CIMIC will anyway be an important factor to:
• grant the use of local resources
• be able to operate within frame of international Human Rights
• facilitate an eventual transmission to civilian administration.

CIMIC is an integrated part of Peace Support Operations

As presented in pic 2 CIMIC is evaluated to be useful to support the reconstruction of
a civilian environment back to normal conditions.

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Picture 2. CIMIC with the use of conflict preventive activities and conflict
management

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Definitions

Swedish policy and doctrin concerning CIMIC is linked togehter with the NATO
definition of CIMIC according to AJP -9: “CIMIC facilitates co -operation between a
NATO Commander and all parts of the civilian environment within his Joint
Operation Area (JOA)”.

CIMIC is:
“The co -ordination and co-operation, in support of the mission, between the NATO
Commander and civiianl actors, including national population and local authorities,
as well as international, national and non-governmental organisations and
agencies”¹

According the UN model, the purpose of CIMIC is to support your own operational
task through improving the situation for the functions of the civilian environment and
support the humanitarian assistance.

CIMIC is defined in this handbook as follows:

• CIMIC includes the staff function CIMIC in a multinational crises responce force
and related tasks and activities linked to it.
• CIMIC guarantees the execution of the civil-military co -operation, which, in the
frame of the overall aims of crises management, is aiming to facilitate the
execution of the military contribution. In the same way, the civilian contribution is
facilitated through co-operation and co-ordination with the military forces.

1. MC 411 NATO definition

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Picture 3. Civil-military co-operation nationally and internationally

In Sweden, the expression CIMIC is equivalent to the Defence co-operation and the
regular co-operation between authorities¹.

Supporting factors
Factors who are supporting the use of CIMIC:
• CIMIC-activities represent a part of the military commanders resources to execute
the overall mission.
• The CIMIC function would be a fully integrated part in the headquarter and have a
complete general view over CIMIC activities in the area of operations.
• CIMIC represent the interface with the civilian organisations. Primarily in the
initial stage will the military resources be used, but that cannot intrude on the
execution of the military mission.

1. FMO 2001-04-30, HKV 03 300:63906

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The CIMIC activities and the CIMIC support to civilian assets is contributing to the
reduction of conflicts and tense among the civilian inhabitants, which often occur as a
result of the military activities. CIMIC activities should be simple and should be
supported with proper resources, including well trained (CIMIC) personnel. Early co-
ordination and negotiations with civilian authorities would ensure an effective and
successful operation.

The CIMIC activities in Bosnia-Herzegovina have the following generic struc ture:

At the operational level at SFOR HQ in Sarajevo it is the J9 who leads the CIMIC
activities within the SFOR area of operation.

At the tactical level there are the three multinational divisions with their G5 who co-
ordinates CIMIC within their respe ctive area of operation.

Picture 4. Example of a CIMIC unit’ activities

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• The Headquarter contains functions of co-operation and the following up of

refugees’ returnee.
• The CIMIC teams have geographical areas of responsibility linked to special
projects or tasks.
• The function of project might as well has its own staff.
• In the Swedish battalion in Kosovo, the battalion headquarter section S5 is
organised with six CIMIC officers who have various job descriptions and projects.
• In Kosovo, the acronym CMO (Civil Military Operation) is used.
• In the Swedish battalion in Kosovo, a few liaison officers are organised within the
companies.

Principles
• The principles of the CIMIC work could be divided in to three main categories.
• Civil-military Liaison (CML)
• Support to the Civil Environment (SCE)
• Support to the Force (STF)

Civil-military Liaison
CML is liaison between the military unit and the civilian organisations (IO, GO and
NGO), local authorities and the inhabitants in the area.

Through efficient liaison CIMIC is able to obtain an insight into the processes within
the civilian organisations and could consequently contribute to operational plans.

Support to the Civil Environment

CIMIC support to civilian functions are focused in to maintain the necessary functions
of the civilian environment until the civilian organisations have taken over the
responsibility.

Support to the Force

The military units are dependent of the acceptance by the local inhabitants in order to
be secure and to execute the operations. Civilian resources would also be of value for
the military entities activities.

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CIMIC is to facilitate the co-operation between the local inhabitants and civilian
authorities, so the military achievements will be successful when it comes to the
transmission of responsibility to the civilian agencies according the operational plans.

The primary objective

CIMIC operations and activities should be executed only in order to support the
execution of a military task. CIMIC is the function which shoul plan and co-ordinate
the activity within the frame of the military commanders mission. Furthermore is
CIMIC responsible for information concerning the non-military situation in the
mission area.

Command and Control

The command and control of CIMIC operations and activities is executed of the
Commander in Chief. Military commanders on various levels have to be aware of the
military operations influence on the civilian functions and the civilian environment
influence on the military operations.

In accordance to all other functions of support, CIMIC must perform through efforts
with a fixed purpose to ensure the maximum effect. Commanders should be able to
prioritise and command CIMIC operations and activities in a way so that the military
efficiency is maintained, without any increased civilian suffering.

Economy
The military resources are proportioned to execute the military task. The CIMIC
function has to economize on the military resources so that support to civilian
operations/executions is adapte d to promote the execution of the main military task.

The use of military resources to civilian purposes would possibly create a dependant
civilian environment.

Military resources would nevertheless be used during certain circumstances to save

lives and for disaster relief.

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Priority of efforts
The military task has under all circumstances priority.

The use of military resources should be used in operations where they contribute to
reach success. A priority when using military resources would contribute to improve
the civilian inhabitants’ opinion of the military and their intention to safeguard the
inhabitants’ interest.

Disunion concerning priority and the use of military resources might end up in a
limited effect on the inhabitants and the execution of the military tasks. This can
result in an extended mission, with all civilian and military consequences this will
involve.

Humanitarian obligations
A military commander has a juridical responsibility to maintain the international laws
and convention i conjunction with armed conflicts. The rules of war claim that the
military operations influence on non-combatants is limited. This is a basic principle
when establishing the legitimacy of a mission. The use of military power will lead to,
with few exceptions, a human suffering. As well, the individuals’ as the people’s
dignity and human rights should be respected and guarded according to international
law and units’ Rules of Engagement (ROE).

Principles that controls civil-military relations

Military entities must acquire good understanding of and attention to local culture and
law and order in a political sensitive environment. A thoughtless or a completely
innocent violation of local law and customs could cause a very unfortunate
development and the reby seriously deteriorate the changes of progress of the mission.
CIMIC is playing a crucial role when creating the understanding of the military
concerning local culture, primarily through training and education.

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Common aims
When links to the civilian authorities and the organisations are established, demands
have to be made to maintain and develop them in order to consolidate the co-
operation. Therefore, should common aims be stipulated and the military commander
should integrate these aims in military plans and operations.

Allocation of responsibility
Culture, organising and working methods in the civilian organisations that military
forces should be co-operating with are exceedingly different. Processing the common
aims should lead to agreement concerning allocation of responsibility and a valid and
an interchangeable co-operation should be established and be maintained.

Civilian advantages
Civilian authorities, agencies and organisations and the civilian inhabitants could due
to different reasons, be unwilling to co-operate with military entities. They could due
to lessons learned feel distrust towards the military or they could be worried about
that such co-operation should damage their independence and authority. A military
force could however be in a position to offer them resources, who could satisfy the
civilian needs in emergencies. This can be executed in many ways, i.e. through
offering medical resources, manpower, equipment or information.

Openness
To have successful CIMIC activities, mutual confidence and respect is needed
between the parties involved. The CIMIC work should be characterized by openness
and the ambition to get the confidence and faith of the civilian environment.

Tensions in the political, military humanitarian work or other kinds could sometimes
lead to confusion and misunderstanding. Such tension can get worse through political
prejudice, incorrect or delayed information by the media and the lack of
communication. The CIMIC personnel could be a valuable source to loca l and civilian
information. Nevertheless, these personnel could easily be ineffective if it is used
actively for other purposes, i.e. collection of military information.

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Communication
An efficient communication with civilian authorities, organisations and the civilian
inhabitants is determining a constructive co-operation to proceed. The difference
between military and civilian organisations is demanding tolerance, mutual respect
and patience.

There are civilian organisations who would like to establish an independent position
to co-operation and who consider that their independence is more important than the
co-operation. The maintaining of an open and continuous communication is by these
reasons necessary to increase the understanding between the parties.

The operational environment and consistency

A military force should be able to be operational in many different environments. The
political, economical, military, geophysical and demographic factors are determining
for the civil-military infrastructure.

This infrastructure is the foundation of co-ordination of the civil-military relations.

The stable civilian infrastructure

To get the military force operational in an area, when including states with a sufficient
developed and solid infrastructure, the military commander relations to these states
should be based upon the principals of the sovereignty of states. The military
commander and the national authorities should negotiate agreements, where the
choice of methods and procedures of the common efforts and support to the civilian
environment are stipulated. Such agreements are the foundation of the interface
between the military force and the state/states. Often would the involved states
designate a national authority with responsibility of the co-operation with the military
force.

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Instable civilian infrastructure

The military force could be deployed into an area where no functioning infrastructure
exists. or where its insufficient or instable. Many organisations could exist -
international, governmental, non-governmental or private – who are trying to
compensate the limitation of stability. There could also be other military and para-
military forces and groupings in the area of operations.

The principle of the national sovereignty should be respected as well in this

environment.

If the civilian infrastructure is instable, heavy demands on the military commander is

placed to have control of the situation in his area of operations. Then it’s important to
establish co-operation with several different military and civilian organsiations and
groupings to maintain a fundament for the force political-military, civil-military and
military-military co-operation and co-ordination.

A missing infrastructure
In a scenario like i.e. Kosovo, where no sufficient and stable infrastructure exists,
heavy demands are placed on the international efforts.

When a functioning infrastructure is missing, the international force has to include

administrators who can run the necessary functions within the area of operations . The
mission has to, as well, be supported by civilian police units who can maintain the law
and order.

The military force is responsible for the overall security in the area.

Under these kinds of circumstances, the principle concerning national sovereignty is

also valid.

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Components
The complete CIMIC capacity could be effective when the following three
components are in place:
• A fully developed doctrine outline (directives),
• The understanding for and willingness to use the doctrine for real (training)
• The physical capacity concerning trained staff

Sweden has Joint Military Doctrine reference PSO. The plans and procedures for
missions that Sweden will contribute to are made by the organisation who is
conducting the command and control of it.

The training of Swedish staff contains of the NORDCAPS CIMIC course in

Denmark, the training and exercising in Sweden prior the dispatch. The most
important element is an integration of CIMIC role -play in exercises of relevance.

The mission area and who is in OPCOM, will decide what structure the mission will
have concerning the CIMIC capability.

Force Protection
A well executed CIMIC operation in a mission area would be a good mean for Force
Protection and the inhabitants will accept the military force.

At a Danish CIMIC conference in Copenhagen in August 2000, Dr John Mackinlay

from the Centre of Defence Studies at King’s College in London lectured, that
IO/GO/NGO would look on the military entities as intruders in their areas.

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Picture 5. The benefit use of a PSO unit in relation to its readiness to take risks

Unequivocal British lessons learned are stating that you have to be ready to accept
casualties if you want to accomplish anything in an area of conflict.

The lessons learned from Bosnia shows that the Nordic countries have a balanced
Force Protection and a good effect with their CIMIC operations.

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“What ever we these operations, Peace Enforcement

or Peace Keeping, they will require a civilian
component and a civilian-military interface.

That’s been the case in all of those operations in the

past and most certainly in Bosnia, and it will be one of
the key Lessons Learned for the future.”

Carl Bildt
The High Representative
Sarajevo, May 1996

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Tasks and functions

General
As mentioned in chapter 1, CIMIC will have a very important function
through the various phases of the whole conflict. The character or the
size of the different CIMIC tasks varies and are depending on:
• What phase of the conflict you are in to. Are you in the conflict
preventive phase, in the operational phase or in the post conflict
phase?
• What strength and intensity are in the actual phase?
• Where you are geographically deployed to execute your task (close
the confrontation line or outside the area of operations itself)?
• The size of the conflicts’ affection on the civilian environment.
• What level you are at: CJTF-, division-, brigade, battalion- or
company level

CIMIC is an integrated part of Peace Support Operations and has the

primary task to establish conditions for a long-term peaceful settlement
of the conflict.

The military force should be responsible for a safe environment for the
civilian entities of the Peace force and for the humanitarian assistance
organisations that are operative in the area of conflict.

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As the environment varies, from international conflicts to civil war

including more or less destroyed infrastructure, are the missions
characterized by the varying design of the international efforts.

This will affect as well the structure and the assignments of military
force.

In this chapter a general description is given of the different CIMIC

tasks, the functional areas of CIMIC and the relationship between
CIMIC and the other divisions/branches in the HQ.

One example of CIMIC functions on strategical, operative and tactical

level and factors that affects these functions is presented in picture 6 a-b.

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Picture 6 a). The CIMIC functions on strategical, operational and

tactical level in a mission area.

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Dayton agrement
Mandate

Freedom of Movement

Refugee problems
Visits over IEBL/borders
Return settlements

Police -judicial system

War crimes
Hague tribunal

Democratisation
Coming elections

Reconstruction of the infrastructure:

- communications
- industry/companies
- social security
- hospital, schools
- maintenance- and house construction projects

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Tasks
• Civil-Military Liaison (CML) contains the relations and co-
operation between military units and civilian authorities, the co-
operation with various actors, organisations and the inhabitants in the
area where the force will operate or is planned to operate.
The Civil-military Liaison efforts are executed on a broad scale
during all faces in a conflict.
• Support to the Civil Environment (SCE) contains all support by
military entities to the civilian authorities, the co-operation with
various actors, organisations and the inhabitants.
• Support to the Force (STF), contains the need of support of civilian
resources to the military operation.

Civil-Military Liaison

The extent of civil-military connections decides the development of the

other CIMIC functions. In some cases this could be self-dependent
activities with a specific aim, as an example through a confidingly co-
operation assuring a efficient communication or confirm the legitimacy
of the operation. The co-operation will be the basis as well of planning
as to bring the CIMIC process forward in one or both of the other main
areas.

It is of crucial importance for the progress of the operation that

connection is established as soon as possible inc luding identified civilian
actors and organisations. The co-operation with civilian authorities could
be supported of among other things a well functional press and
information service.

Civil-military contacts contains:

Establishment and maintaining of contact with civilian actors, authorities
and organisations.
Establishment of liaison and co-operation.
Collection of information
Processing of information, reports and complaints.

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Support to the civilian environment

The support of the civilian environment covers a broad spectrum of

CIMIC activities, from agreements of exchange of information to larger
reestablishment objects. It could comprise a broad use of military
resources, information, personnel, material, equipment, communications,
expertise and training depending on which of the phases of conflicts you
are in.

In conjunction with humanitarian crises, it is normal that civilian

humanitarian organisations are operating in the area with a need of
military support. In other occasions, it could be imposs ible for the aid
organisations to act self-dependant due to an armed conflict. In suck
occasions, the military force could be tasked to offer protection, security,
and transport support to ensure that the aid is reaching its destination.
The decision conc erning the amount and continuity of the military
support should be taken on the highest level, taking in consideration the
political as well as the military factors. The support to the civilian
environment could also include support to governmental and
environmental activities, support to economical development, charity for
development and support to the various actors and organisations
missions.

Picture 7. Escort of a civilian rescue convoy

The support to the civilian environment is aiming to reduce negative

effect of the military operation through contribution to the operational
planning in order of:

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Ulf Jinnestrand MEMO
SWEDINT 2003-08-29

DRAFT 1

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