平和構築における民軍関係の指針アフガニスタンDDRに見るPRTの役割--

上杉 勇司

doi:10.11375/kokusaiseiji1957.152_1

Existing guidelines for humanitarian organizations on civil-military relationship in complex emergencies are not appropriate for other civilian organizations engaging in peacebuilding. This paper seeks to suggest an urgent need for developing an alternative to such guidelines. By reviewing a series of interactions between the Disarmament, Demobilization and Reintegration (DDR) process and Provincial Reconstruction Teams (PRT) in Afghanistan, the paper purports to illuminate a basic set of guiding principles that would define the relationship between civilian and military actors in peacebuilding.<br>According to the existing guidelines, the use of military assets in support of humanitarian operations should only be allowed under the following circumstances: (1) in the case of “last resort, ” (2) where no alternative civilian resources exists— “unique capability, ” (3) where the use of military assets to support humanitarian activities is provisional— “time-limited, ” (4) where the urgency of the task at hand demands immediate action— “timeliness, ” and (5) where “civilian control” over the use of military assets is guaranteed. Nevertheless, this paper argues that such a set of criteria cannot be adopted automatically as a guideline for both civilian and military actors in the DDR process, which is one of the core activities of peacebuilding. In fact, a very close coordination between civilian and military actors was observed in the Afghan DDR process.<br>In the Afghan peacebuilding process, a new civil-military endeavor called PRT has been introduced in order to facilitate post-conflict reconstruction efforts in the “non-permissive” environment in the provinces of Afghanistan. The basic concept of the PRT adopts a three-pillar approach, that is, PRTs seek to tackle with three core dimensions of peacebuilding such as security, governance, and reconstruction in an integrated way.<br>The study examines the functions fulfilled by PRTs in the DDR process in three distinct phases: (1) pre-operational stage, (2) operational stage, and (3) transitional stage. In the pre-operational stage, interactions between the civilian organizations responsible for the DDR process and the military element in PRTs did not occur. This is because the basic implementation plan of the DDR process had already been developed by the civilian organizations in charge when PRTs completed their nation-wide deployment. However, there exists a potential for further cooperation between civilian and military actors in the pre-operational stage, especially in the areas of joint planning and joint exercise. In the operational stage, on the other hand, PRTs fulfilled key civil-military coordination functions such as communication, exchange of information, facilitating agreements, and evaluation. In addition to such key functions, PRTs also contributed to the advancement of the DDR process by performing the following five lubricating functions: (1) deterrence, (2) persuasion and mediation, (3) incentive, (4) information dissemination and collection, and (5) labor service. In the transitional stage, most of civil-military interactions occurred in the Reintegration phase of the DDR process in which PRTs filled in a gap between the DD phases and the R phase. PRTs are also expected to fill in the wider gap between the DDR process and the mid-term socio-economic development.<br>Based on a close review of the civil-military interactions in the Afghan DDR process, the study concludes that (1) timeliness and (2) effectiveness could be the twin fundamental guiding principles for the civil-military relationship in peacebuilding.

平和構築における民軍関係の指針アフガニスタンDDRに見るPRTの役割--

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平和構築における民軍関係の指針アフガニスタンDDRに見るPRTの役割--

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