5.4. Strategic Framework to Support SSR (Karin Gatt Rutter and Gianmarco Scuppa

5.4. STRATEGIC FRAMEWORK TO SUPPORT SSR

by Karin Gatt Rutter and Gianmarco Scuppa

Security Sector Reform (SSR) can be translated as ‘transforming a country’s security system so that it gradually provides individuals and the state with more effective and accountable security in a manner that is consistent with respect for human rights, democracy, the rule of law and the principles of good governance.’

The EU has been supporting Security Sector Reform in numerous countries for many years by using external action instruments and crisis management tools. In 2015, foreign ministers asked the High Representative and the Commission to review the existing policy framework and to maximise the impact, efficiency and consistency of the EU’s support. This led to the development of the new EU-wide strategic framework to support Security Sector Reform, which was issued in the form of a Joint Communication by the High Representative and the Commission in July 2016 and subsequently endorsed by the Foreign Affairs Council in November of the same year.

This new SSR policy framework merges and updates previous policies from 2005 and 20061 that have been guiding EU action in the field of Security Sector Reform and includes new elements in line with international trends, such as the recognition of the increasingly strengthening links between security and development as explained in the Agenda 2030 and more explicitly in sustainable development goal 16.2

OBJECTIVES FOR SECURITY SECTOR REFORM

This SSR strategic framework sets clear objectives for EU engagement in the security sector: • support partner states in concretely improving security for individuals and the state;

This means, in particular, addressing the security needs of different groups (including women, minors and minorities) as perceived and experienced by them. • improve the legitimacy, good governance, integrity and sustainability of the security sector in partner states.

This means encouraging and supporting the security sector in partner states to respect internationally accepted human rights, the rule of law and democratic principles, apply the good governance principles of transparency, openness, participation, inclusivity and accountability, respect public finance management rules and procedures, fight corruption and be fiscally sustainable.

1 A concept for European Community support for Security Sector Reform, Communication from the Commission to the

Council and the European Parliament (SEC(2006) 658), and EU concept for ESDP support to SSR (12566/4/05), which was produced on the basis of the European Security Strategy – A Secure Europe in a Better World, adopted by the European Council on December 2003. 2 Transforming our world: the 2030 Agenda for Sustainable Development (Resolution adopted by the General Assembly on 25 September 2015; UNGA A/RES/70/1); Goal 16: ‘promote peaceful and inclusive societies for sustainable development, provide access to justice for all and build effective, accountable and inclusive institutions at all levels’.

European Union/EUPOL COPPS

National ownership is essential for achieving any sustainable changes in the partner country.

SCOPE OF SSR

The SSR strategic framework has a very broad scope as it applies to all EU actors and instruments, including political/diplomatic, external actions instruments, crisis response and CSDP civilian and military actors. It also applies in all contexts, not only in conflict or post-conflict situations or any specific geographical region. It is designed to be broad enough to guide a variety of situations encountered throughout the various phases of EU support from identification, planning and programming to the implementation of activities.

The starting point for any EU action in the security sector of a partner country should be an understanding of the security sector and the context in which it is situated. EU delegations will therefore be requested to report more regularly on security sector developments as part of the regular political reporting to headquarters. Where there are CSDP missions and operations present in the field, such security sector analysis and reporting should be done jointly. If the situation calls for substantial security assistance, specific and in-depth security sector assessments could be undertaken to identify security needs as perceived and experienced by the different groups of the population (for instance women and minority groups) and to what extent the security sector addresses them.

NATIONAL OWNERSHIP

EU assistance should therefore be based on a solid understanding of the features and actors of the security sector and be built on ongoing national debates and initiatives and, where existing and credible, on national strategies, policies and plans. This will enhance national ownership, which is essential for achieving any sustainable changes in the partner country. National actors should steer the reform process and take over-

European Union

The starting point for any EU action in the security sector of a partner country should be an understanding of the security sector and the context in which it is situated.

all responsibility for the results of interventions, which should result from an in-depth political and policy dialogue on the security sector with all national stakeholders, including oversight entities such as legislative bodies, and civil society. Issues of good governance, human rights, the rule of law and democracy are also part of such dialogues, as the respect for these principles is particularly critical in the security sector.

Transforming any security sector is a complex and lengthy process which requires long-term engagement and flexibility, because the political and/or operational environment may change rapidly and the EU must be able to adapt its political, technical and financial support.

Moreover, in many situations the population may have pressing security needs. It is therefore fundamental to contribute to immediate solutions to these needs while gradually progressing towards longer-term systemic changes in the security sector.

COOPERATION AND COORDINATION

One key aspect of the new strategic framework is the enhancement of the effectiveness and impact of EU action through better coordination of EU support, including with EU Member States. The new framework therefore proposes the mapping of all EU SSR activities and the development of coordination matrices that set common EU objectives and identify links and the sequencing of diplomatic, development cooperation and possible CSDP actions to achieve them.

Involvement with other relevant international actors is also necessary to avoid duplication and to increase a shared understanding of needs and objectives.

An essential part of any form of support is monitoring and evaluation, as well as understanding the risks linked to assistance/intervention. The most important risks can be categorised under broad headings related to 1) insufficient national political commitment to change, 2) negative unintended consequences, 3) reputational risks, and 4) the risks of non-intervention.

Context analysis and conflict-sensitive analysis are important tools with which to generate an understanding of the context in which support is provided. Additionally, a solid risk management and risk mitigation framework will be developed to guide any future EU assistance in the security sectors of partner countries.

To maximise the EU’s effectiveness in providing SSR support, EU SSR expertise will need to be developed both at the level of headquarters and in the field. Following the endorsement of the strategic framework a permanent, informal, inter-service task force has been established with staff from relevant thematic EEAS and Commission services.

The function of this task force is to develop methodological tools, oversee EU SSR activities and provide support and advice to EU Delegations, EEAS and Commission services and CSDP missions.

In the field, CSDP missions should assist the EU Delegation on SSR-related issues and all EU actors – including Member State diplomatic missions – and should share information and analysis, participate in joint analysis and contribute to the formulation of SSR coordination matrices.