Demining Policy: U.S. Government Interagency Humanitarian Demining Strategic Plan

Bureau of Political-Military Affairs
January 21, 2001

Changing roles and responsibilities among U.S. Government agencies participating in the U.S. Humanitarian Demining Program and the rapid expansion of the Program have necessitated an update in the Interagency Humanitarian Demining Strategic Plan. This revision is based on experiences and lessons learned over the last few years on humanitarian demining efforts. This new strategic plan should accelerate and make more effective U.S. Government efforts to make mine-affected countries around the world mine-safe.

Table of Contents

Executive Summary
Chapter 1. Introduction
Chapter 2. Vision, Goals, and Objectives
Chapter 3. The Interagency Working Group on Humanitarian Demining
Chapter 4. The Humanitarian Demining Program Process: A Methodology
Appendix A: Policy Assessment Visit
Appendix B: Policy Review Visit Checklist
Appendix C: Glossary

Executive Summary

The United States Government (USG) Humanitarian Demining Strategic Plan provides the strategy and implementing methodology to develop a more effective and better integrated humanitarian demining program that helps selected countries relieve human suffering and develop indigenous capacity, while promoting U.S. political, security, and economic interests. The Strategic Plan was developed, coordinated, and approved by the Interagency Working Group (IWG) on Humanitarian Demining. It provides the framework for improving interagency coordination and synergy by formally documenting:

• Visions, goals, and objectives for the USG humanitarian demining program and the means to achieve them (Chapter 2).
• Roles and responsibilities of the IWG and those of its members and participating departments and agencies (Chapter 3).
• Methodology to coordinate interagency activities within the context of the USG humanitarian demining program (Chapter 4).

The appendices supplement the plan and detail the process for recommending a country for U.S. humanitarian demining assistance (Appendix A), and, determining the success of a U.S. humanitarian demining program in a give host nation (Appendix B). This plan is designated to be a living document. It will be modified and updated as the IWG develops and implements the U.S. Government's humanitarian demining program.

Chapter 1. Introduction

Landmines affect almost every aspect of life in states recovering from conflict. They maim or kill innocent civilians, obstruct emergency assistance, hamper agricultural and economic development, and prevent refugees and displaced people from returning to their homes. They also leave a legacy of disabled individuals.

Purpose. The U.S. Humanitarian Demining Program (HDP) is a comprehensive effort supporting mine action initiatives to include mine awareness, clearance of priority areas, training host country deminers, reviewing and accelerating promising technologies, and medical and rehabilitative assistance to survivors of landmine accidents.¹ The Interagency Working Group (IWG) on Humanitarian Demining is charged with identifying which countries receive U.S. demining assistance and managing U.S. resources committed to the program.

The Interagency Humanitarian Demining Strategic Plan provides the roadmap for interagency (all USG departments and agencies) coordination and cooperation. The plan establishes:

• Visions, goals, and objectives for the USG humanitarian demining program and the means to achieve them (Chapter 2).
• Roles and responsibilities of the IWG and those of its member and participating departments and agencies (Chapter 3).
• Methodology and planning timeline to coordinate interagency activities within the context of the USG humanitarian demining program (Chapter 4).

_____________________

¹Title 10, United States Code, Section 401 prohibits any member of the armed forces from engaging in the physical detection, lifting, or of destroying landmines. It is also the policy that this restriction shall apply to DoD civilian employees.

Chapter 2. Vision, Goals, and Objectives

The United States' humanitarian demining program is shaped by the following statement of vision, goals, and objectives.

Vision -- Foster a world safe from landmines -- relieving human suffering from their adverse affects and promoting U.S. foreign policy and national security interests.

Goal 1 -- Assist nations to alleviate the threat of landmines to innocents.

• Objective 1 -- Prioritize demining assistance based on each country's needs.
• Objective 2 -- Help establish and support national demining offices' plans and programs.
• Objective 3 -- Develop a coordinated exit strategy, once self-sufficiency is achieved.

Goal 2 -- Promote U.S. foreign policy and national security.

• Objective 1 -- Strengthen U.S. relations with other governments while promoting human rights, and fostering peace, security, and political stability in host nations.
• Objective 2 -- Improve access, military-to-military contacts, and training and readiness opportunities for U.S. Armed Forces.

Goal 3 -- Encourage international participation to eliminate the threat of landmines to civilians around the world by 2010.

• Objective 1 -- Support cooperative international efforts, and contributions of expertise and resources.
• Objective 2 -- Foster international cooperation in research and development of new technologies for the detection and clearance of landmines.
• Objective 3 -- Develop partnerships with the U.S. private sector.

The IWG facilitates the coordination of humanitarian demining activities among various U.S. Government agencies. Chapter 3 discusses the membership of the IWG, and delineates roles and responsibilities.

Chapter 3. The Interagency Working Group on Humanitarian Demining

On September 13, 1993, the National Security Council requested that the Department of State establish an Interagency Working Group on Land Mines and Demining. The implementation of this directive resulted in the establishment of core concepts for the USG humanitarian demining program. The announcement of the Demining 2010 Initiative in October 1997 created a separate responsibility, generating increased international coordination and contributions for humanitarian demining, complementary to the mandate of this IWG.

Interagency Working Group Members

IWG members include:

• National Security Council.
• Department of State (Chair).
• Department of Defense (Vice-Chair).
• United States Agency for International Development.
• Central Intelligence Agency (Intelligence Community).

Interagency Working Group Objectives

The IWG develops and coordinates U.S. humanitarian demining policy and programs. The IWG itself has no permanent staff or separate funding, and meets quarterly or more often if required. The IWG has a subgroup which meets, at a minimum, two weeks prior to the IWG. The sub IWG addresses policy, plans, researches and development initiatives, with the goal of providing a recommendation to be formally approved at the IWG. It also is a focal point for coordination between IWG meetings.

Interagency Roles and Responsibilities

The principal departments and agencies represented at the IWG have their own legislative and funding authorities. This plan identifies their different roles, responsibilities, and interests, and provides a framework for developing a cohesive, coordinated humanitarian demining program.

National Security Council (NSC) Role

• Oversees development and implementation of humanitarian demining policy.
• Ensures that the interagency process meets the President's policy objectives.
• Provides policy guidance to the interagency working group in assessing priorities and eligibility for humanitarian demining assistance.

Department of State Roles

Bureau of Political-Military Affairs (DOS/PM)

• Acts as lead agency in coordinating U.S. humanitarian demining activities worldwide.
• Chairs the IWG on humanitarian demining and the IWG policy subgroup.
• Initiates the process of determining eligibility for U.S. humanitarian demining programs and participates with other organizations throughout the determination process.
• Coordinates with the U.S. embassy in a potential recipient country to generate formal requests for demining assistance from that country's government. Coordinates demining-related matters with the embassy throughout the demining effort.
• Coordinates among and between participating agencies to maximize use of resources and to avoid duplication.
• Provides reports and assessments to Congress and appropriate entities of the Executive Branch on the global landmine situation.
• Approves Nonproliferation, Anti-terrorism, Demining and Related Programs (NADR) funding to support initiatives in mine-affected nations and cross-cutting initiatives related to humanitarian demining.

Bureau of Population, Refugees, and Migration (DOS/PRM)

• Supports all aspects (including financial) of humanitarian demining conducted in connection with refugee repatriation and reintegration programs of the United Nations High Commissioner for Refugees (UNHCR) and other relevant international organizations.
• Coordinates, through IWG participation, with other USG agencies on the prioritization of demining and mine awareness activities.

Special Representative of the President/Office of Global Humanitarian Demining (GHD) Responsibilities

• Coordinates efforts to increase private sector funding.
• Establishes and promotes mechanisms for international coordination of demining activities.
• Initiates and leads diplomatic efforts to promote Demining 2010 Initiative with other governments, international organizations and NGOs.
• Fosters public/private partnerships to support the above objectives.
• Consults with the Department of Defense to ensure that research and development for humanitarian demining supports the goals of the Demining 2010 Initiative.
• Coordinates with DoD on U.S. participation in international demining research and development efforts.
• Provides and coordinates representation at gatherings focusing on mine detection and clearance technology.

Embassy Responsibilities

• Provides overall policy support to the program, occasionally reporting on the program's progress and its effect upon U.S. interests in the host nation as well as on the overall bilateral relationship.
• With respect to program management, Embassy also submits periodic progress reports, including specific information requested, as required.
• If the Embassy has requested an allotment of NADR funds for local purchases, the Embassy also provides financial and accounting reports for those funds as required.

Department of Defense Roles

Office of the Deputy Assistant Secretary of Defense for Peacekeeping and Humanitarian Assistance, Office of Special Operations and Low-Intensity Conflict (OASD (SO/LIC) PK-HA)

• Acts as DoD's lead humanitarian demining agency by exercising overall responsibility, corporate level policy, planning and oversight for DoD humanitarian demining programs conducted pursuant to Title 10, U.S. Code, Section 401.
• Provides the Vice Chair of the IWG and co-chairs the sub IWG.
• Develops and implements DoD humanitarian demining activities based on applicable presidential policy guidance coordinated through the IWG.
• Coordinates and authorizes funding for DoD humanitarian demining operations and related activities.
  --In coordination with DSCA (Defense Security Cooperation Agency), allocates DoD funds for the DoD element of the USG humanitarian demining program.
  --Assists host countries in the establishment of humanitarian demining organizations.
  --Coordinates U.S. Special Operations Forces (SOF) humanitarian demining training with Fort Leonard Wood Humanitarian Demining Training Center.

Defense Security Cooperation Agency (DSCA)

• Coordinates and monitors execution of DoD humanitarian demining training operations and related program activities. In coordination with SOLIC, plans, programs, budgets for, and allocates budget authority from the Overseas, Humanitarian, Disaster and Civic Aid (OHDACA) appropriation to support the DoD humanitarian demining program.
• Assists the Office of the Joint Chiefs of Staff (OJCS), United States Special Operations Command (USSOCOM), geographical CINC (Commander-in-Chief), host countries and other organizations in planning for, establishing, and executing mine action programs.
• Coordinates with the DoS on security assistance policy, budget planning, and execution issues for demining activities.
• Manages host countries' Foreign Military Financing FMF and specified NADR accounts.
• Sells defense articles and services, through the Foreign Military Sales (FMS) program, to host countries for support of mine action programs.

Office of the Deputy Assistant Secretary of Defense for Special Operations Policy and Support, Office of Special Operations and Low Intensity Conflict (OASD (SO/LIC) SOP&S)

• In coordination with OASD (SOLIC) PK/HA, acts as DoD's lead agent for humanitarian demining research and development activities to include:

--Examining equipment/technologies for detecting mined as well as mine-free terrain.
--Development of individual tools to improve the safety and efficiency of manual demining.

• Provides quarterly notification to the IWG, or its subgroup, of planned equipment testing in mine-affected countries which are part of, or are potential participants, in the USG HD program. This notification will allow the IWG to review the proposed testing to ensure that it is consistent with U.S. foreign policy and HD objectives. Testing of equipment in non mine-affected countries also requires IWG notification.

Office of the Joint Chiefs of Staff (OJCS)

• Through the Joint Staff Operations Directorate (J33 Special Operations Division), coordinates HD operations and force allocation with regional and supporting CINCs, while providing guidance and operational control authority for DoD HD operations.
• The Joint Staff, J33 Special Operations Division-Counterproliferation Division is the Office of Primary Responsibility.
• Provides HD mission tasking to geographic combatant commanders.
• Provides guidance and direction on the conduct of military support to HD operations through the Chairman of the Joint Chiefs of Staff Instructions (CJCSI).
• Ensures that plans developed by the regional CINCs include, at a minimum, the number of training deployments anticipated to the country, time-phasing of the operation's critical elements, subsequent training missions or assessments required, and other factors (including projected resource requirements) that will be necessary to plan for and execute the proposed mission.

Geographic Combatant Commander

• Plans, manages and conducts HD training operations within the CINC AOR.
• Recommends and prioritizes theatre HD program recommendations through the Joint Staff to OASD (SO/LIC), DSCA and the IWG.
• Executes DoD-funded HD programs in host countries
• Coordinates U.S. participation in specified multilateral humanitarian demining operations (e.g., those sponsored by the Organization of American States (OAS).
• Conducts assessment for HD programs and mine action technologies.

United States Agency for International Development (USAID)

• Independently, but in coordination with other organizations, plans, designs, funds, and implements limited demining as part of new or ongoing USAID activities consistent with achievement of agency, bureau, and mission strategic objectives.
• Augments and supports humanitarian demining operations.
• Provides emergency assistance to reduce suffering and save lives.
• Promotes return of refugees and the internally displaced to their homelands (or elsewhere).
• The Leahy War Victims Fund helps to achieve sustainable development in those countries significantly affected by landmines, and provides medical assistance, e.g. prostheses, for landmine survivors.

Intelligence Community (Central Intelligence Agency)

• Serves as the senior representative for the Intelligence Community to the IWG.
• Identifies foreign activity counter-productive to humanitarian demining efforts.
• Provides regional security assessments upon requests.
• Monitors foreign mine and countermine technology advances.
• Provides information on landmines and landmine issues in nations in conflict or those emerging from conflict.

Chapter 4. The Humanitarian Demining Program Process: A Methodology

This chapter delineates a process for selecting a country and developing and executing its assistance program.

The process consists of ten steps:

• Assess strategy and policy.
• Determine requirements.
• Develop a unified country plan.
• Allocate resources.
• Pre-deployment training.
• Execute.
• Reassessment.
• Sustainment.
• Final Assessment.
• End-State.

Each step provides for the succeeding step and feedback within the process (Figure A-1). Each step also has unique substeps and milestone events. These milestones are documented and reviewed at Interagency Working Group meetings where programmatic decisions are made to continue, modify, or stop the planning, development, or execution effort. Detailed descriptions of the ten steps follow.

Figure A-1. The Humanitarian Demining Program Process [text-only version]

1. Assess Strategy and Policy

The first step in the process is a review of the President's National Security Strategy (NSS), the National Military Strategy (NMS), legislation and other associated policies. This review enables the IWG to ensure that the national security interests of the United States are met when considering countries for inclusion in the humanitarian demining program. While the overall responsibility for successfully completing this step rests with the IWG, all players participate. Many IWG participants have a role (e.g., the NSC develops the NSS; DOS manages Interagency policy in reviewing its applicability; DoD assesses the linkages between the NMS and the program; geographic combatant commanders (CINCs) assess regional strategies and cooperative agreements; DSCA tracks legislation impacting security assistance programs; and the country team assesses the country's capability and willingness to sustain the humanitarian demining program).

Review presidential directives, NSS/NMS, other policy guidance and legislation

Lead: Interagency Working Group

During this step, presidential policy announcements, the NSS, NMS, and Presidential Decision Directives are reviewed. The overarching region-specific and transnational NSS objectives are identified; emerging concepts and the security environment are analyzed; and a synopsis of key presidential guidance, NSS objectives, and other demining-related guidance is prepared by DOS. DoD assesses the NMS, geographic combatant commander's strategies, and any demining-related guidance. From this information, a linkage is formed from the assessment of policy through execution (Figure A-2). This linkage is critical to ensuring a conceptual understanding of how demining contributes to national goals and where a specific demining effort supports USG humanitarian demining program objectives.

IWG participants track legislation in their respective interest areas and attempt, where practical, to promote certain legislative initiatives affecting the humanitarian demining program. For instance, SOLIC tracks humanitarian demining legislation that affects the readiness, training capabilities and operational tempo of its USSOF; DSCA tracks legislation with an impact on humanitarian demining security assistance programs, and, when necessary, influences or initiates security assistance legislation.

Figure A-2. Linkage between Humanitarian Demining and the National Security Strategy [text-only version]

Identification and selection of host countries

Lead: Department of State

To initiate consideration for a demining program in a given country, the IWG must receive a request for demining assistance from the host country, via the appropriate U.S. embassy. In addition to humanitarian objectives, USG interests may include country access and training opportunities for DoD as well as increasing support to NGOs and other organizations. The IWG then directs that a Policy Assessment Visit (PAV) be made, provided there is sufficient evidence that hostilities have ceased, a workable peace agreement is in place, and that landmine hazards are present.

Based on the above criteria, the IWG considers selecting the recommended country for formal demining assistance. Factors used in the selection process include:

USG interests:

• Promote human welfare.
• Facilitate rapid repatriation of refugees.
• Promote stability, democratic process, and economic growth.
• Access and training opportunities.

Severity of the problem:

• Extent of the landmine problem.
• Impact on family income and sustenance.
• Impact on development of local and national economies.
• Impact on agricultural viability.

Impact of U.S. assistance:

• Potential to attract other donors.
• Opportunity to leverage USG efforts with existing programs.
• Opportunity to provide resources, equipment, and training.

Others factors:

• Host country capability and willingness to devote resources toward a sustainable demining program.
• Threat of renewed armed conflict and the prospect of new mine laying after old mines are destroyed.
• Issuance of a Presidential Determination to allow for security assistance.
• Safety of USG personnel, as well as personnel engaged in mine action initiatives funded by the USG.

The IWG will also consider and approve limited mine action support to populations in war-prone regions under its "Emergency Demining Initiative." Guidelines for granting assistance include:

• The provision of assistance would not indicate the establishment of a formal country-specific HD program.
• The USG would support mine clearance activities through NGOs or international organizations; it would not provide support to the national government.
• Mine clearance activity emphasis would focus on facilitating refugee/IDP returns and temporary resettlement, clearance of arable land, homes, schools and delivery of humanitarian assistance to those areas.
• USG-funded mine clearance activities would be restricted to areas where (in the estimation of the U.S. country team, host nation, and NGO grantees) conflict is not expected in the future; the risk to demining personnel is deemed to be low; and the proposed demining area lacks current military strategic value, thus preserving the humanitarian nature of the program.
• USG-funded mine clearance activities would only demine those areas that were already mine-affected. If the host-nation laid new mines, USG funds would not be used to remove them.
• Review of the overall security and conflict situation in-country would be conducted periodically by the IWG, including the intelligence community.
• DoD training programs or OHDACA-funded equipment would not be provided (except for it providing for mine awareness materials).
• NADR-funded equipment would only be provided to the NGO or international organization and not to the host nation.

Any misuse of materials or malfeasance on the part of the host nation could result in the suspension of mine awareness assistance.

Define Demining Project Goals, Objectives, and End-State

Lead: Interagency Working Group

To provide focus and direction, goals and objectives for the assistance effort that support those of the USG humanitarian demining program must be developed.

Conduct Policy Assessment Visit -- Milestone Event

Lead: Department of State

The IWG Policy Assessment Visit (PAV) is conducted on behalf of the IWG to determine the feasibility and applicability of conducting a HD program in a given country on the basis of U.S. policy objectives and national security interests. The assessment is specifically designed to discuss only policy issues, as a decision to conduct a program is not made until after a recommendation has been made to the IWG and a program approved.

The composition of each policy assessment team will be determined by the Department of State (PM) in consultation with the Department of Defense (SO/LIC PK-HA). Generally, the PAV team includes policy representatives from DOS, DoD, USAID Mission (as appropriate), and the regional CINC. The policy assessment team will meet with the U.S. Chief of Mission, key members of the country team and the representatives of the host country. The team reviews whether host country security capabilities and political conditions are conducive to program success and whether the USG effort will enjoy the cooperation of the host country. The senior DOS representative leads the team. The country team coordinates the arrival of the assessment team with the host country.

The host country may provide a letter of introduction to introduce the team during its travels throughout the country. The team describes the U.S. government's HD Policy in broad terms and advises the host country of U.S. expectations, support requirements, and the potential impact on the host country and the country team.

The team provides an exit briefing to the U.S. Chief of Mission upon departure, summarizing the role of the U.S. Embassy in the implementation and management of the country program. The team documents and reports results of the policy assessment visit to the IWG. If a country is approved, the IWG will notify the country through the appropriate U.S. Embassy. The IWG also will direct the CINC to authorize a Requirements Determination Site Survey (RDSS), if one is necessary. The IWG will then forward a cable to the applicable CINC to authorize an RDSS.

The PAV checklist is at Appendix A.

2. Determine Requirements

The second step includes determining requirements, scope, goals and objectives, measures of effectiveness, constraints, issues, participant's roles, and whether to continue with the planning effort to provide assistance to a candidate host country. While overall responsibility for completing this step rests with the IWG, each agency and organization has an important role.

Conduct Requirements Determination Site Survey (RDSS)

Lead: Geographic combatant commander

Through OASD (SO/LIC) to OJCS, the IWG requests that the geographic combatant commander conduct an RDSS. The RDSS is the first opportunity for program managers and the geographic combatant commands to discuss HD program objectives, concerns and needs with the host country. This visit also enables combatant commands and program managers to coordinate initial equipment and budget requirements while on the ground in the host nation.

Before conducting a Requirements Determination Site Survey, the geographic combatant commander should have the results of the policy assessment visit (up-to-date political, security, economic, and humanitarian policy concerns); the current goals, objectives, and exit strategy as determined by the IWG; resource estimates; and any constraints identified by the IWG. The geographic combatant commander will have the best appreciation for the potential vulnerabilities associated with U.S. military participation.

The Requirements Determination Site Survey:

• Identifies resource requirements, including funding, personnel, and equipment.
• Identifies logistic requirements (e.g. transportation).
• Identifies infrastructure requirements.
• Determines survey and marking requirements.
• Assesses ongoing efforts (e.g., by the host country; IOs, NGOs, and PVOs; and other countries).
• Identifies factors that will affect development of the course of action (COA) (e.g., desires of the ambassador). Again, coordination with the country team and DOS desk officer is critical. For example, the Public Diplomacy Officer can provide recommendations on the best way to proceed with demining efforts based on cultural peculiarities, and can conduct public opinion surveys in advance of the team's arrival.
• Validates the security and political environment of the country.
• Clarifies the policy concerns, goals, objectives, and exit strategy determined by the IWG, if necessary.
• Resolves administrative issues.
• Helps develop the country plan.

Conduct Pre-Deployment Site Survey (PDSS)

Lead: Geographic combatant commander/Deploying Unit

Once an RDSS has been conducted and a country plan written and approved, the Geographic Combatant Commander and the deploying unit may conduct a Pre-Deployment Site Survey (PDSS). The purpose of this PDSS is to finalize requirements for the mission and assist SOF in final preparation for the deployment. It is conducted by the operational elements approximately 3-6 months prior to the HD mission execution. (NOTE: There may be instances where the geographic combatant commander decides to combine the RDSS and PDSS into one survey).

The Pre-Deployment Site Survey:

• Finalizes training areas, objectives, identifies personnel to be trained.
• Determines force protection issues and emergency recall procedures.
• Determines the availability of interpreters.
• Finalizes resource requirements.
• Ensures that the country plan, final training requirements and pre-deployment training are in concert with each other.
• Finalizes coordination with the embassy on support and administrative requirements required during the deployment.
• Prior to departure from the host country, the PDSS mission commander develops an MOU outlining actions required between the operational elements, the Embassy and the host nation.

Develop courses of action

Lead: U.S. Embassy/ Geographic combatant commanders/Department of State

The U.S. embassy, in concert with the host nation and the CINC, prepares draft courses of action for a country plan for review by PM/HDP, SO/LIC, DSCA and OJCS. The country plan also is reviewed by OJCS and OASD (SO/LIC) for conformity to planning guidance and support of U.S. goals and objectives.

This concludes the discussion of step two, Determine Requirements, and its milestone event, Approve or Disapprove Project. The completion of this step and the approval of the IWG to continue with the process initiate the third step, Develop Plan.

3. Develop Plan

The third step includes developing a preferred course of action. Major planning issues and possible solutions are identified and included in the single unified country plan for all USG demining activities in the host country.

While the overall responsibility for coordinating and completing this step rests with the IWG, the geographical combatant commanders and country teams play significant roles.

Develop and issue planning guidance

Lead: IWG (State Department); Deputy Lead: OASD (SO/LIC)

When the demining assistance project is approved, DOS/PM/ HDP and SOLIC HA/APL issue planning guidance to the U.S. Embassies and geographic combatant commanders through the OJCS. Guidance includes:

• A request for a course of action with detailed resource estimates.
• Current political, security, economic, and humanitarian policy concerns.
• Constraints and restrictions list.
• Measures of effectiveness.
• Timeline.

Identify and resolve major planning issues

Lead: Interagency Working Group

Evaluation of the country plan may identify issues, most of which will be resolved by PM/HDP, SO/LIC or the geographic combatant commander, either internally or working with the country team and the host country.

Prepare final draft plan -- Milestone Event

Lead: Host Nation/U.S. Embassy/geographic combatant commanders

Once all of the substantive issues are resolved, a draft final plan is prepared. For DoD deployments, OASD(SO/LIC) requests OJCS transmit the appropriate directives and guidance to the geographic combatant commander to submit a final draft plan (unresourced).

4. Allocate Resources

The fourth step includes identifying resources, constraints and spending limitations, resource gaps and alternatives to fill them, and commitments from funding agencies.

Identify resources and gaps

Lead: Individual Funding Agencies

Generally, four organizations fund initiatives as part of the U.S. program: (1) PM/HDP manages the Nonproliferation, Antiterrorism, Demining, and Related Programs Appropriation, which is the primary source of State Department funding for humanitarian demining.

PM/HDP also manages funds transferred from other State Department accounts (Support for Eastern European Democracy (SEED), etc...) to support humanitarian demining initiatives, as well as funds deposited into the Slovenian International Trust Fund for Demining. (2) The Bureau of Population, Refugees and Migration funds humanitarian demining initiatives that have direct implications for refugees. (3) OASD's Office of Humanitarian Assistance and Anti-personnel Landmine Policy develops DoD's policy on humanitarian demining. Policy decisions that result in programmatic expenditures are executed through the Defense Security Cooperation Agency (DSCA), using the Overseas, Humanitarian, Disaster and Civic Aid (OHDACA) appropriation. OHDACA funds are used to fund DoD troop deployments in support of humanitarian demining training. (4) USAID funds mine victim assistance programs through the Leahy War Victims Fund.

Materiel resources are also identified, including DoD's Excess Defense Articles (EDA) and humanitarian assistance excess property. The use of funds to support immediate NGO or UN involvement to initiate demining activities is also considered.

5. Pre-Deployment Training

When the IWG determines that SOF training of indigenous personnel is called for, the fifth step in the process will be the identification of SOF to conduct humanitarian demining training in a host nation, and scheduling these forces for their pre-deployment training at Fort Leonard Wood's Humanitarian Demining Training Center. The IWG goal is to notify USSOCOM, through the Joint Staff, of forces required for a humanitarian demining mission in order for SOF to attend Ft. Leonard Wood training at least 90-120 days prior to mission execution. This two week training course provides SOF the necessary skills to conduct basic/advanced humanitarian demining programs in accordance with U.S. Policy and UN International Standards.

6. Execute

The sixth step includes implementing the humanitarian demining plan. While overall responsibility for this step rests with the plan executor, the IWG plays a significant role.

Manage and coordinate demining activities

Lead: DOS/PM/HDP or geographic combatant commander

Both the State Department and USAID will rely on contractors or NGOs to establish and provide technical advice to a national demining organization (NDO).

The composition of the geographic combatant commander's project team will vary, depending on the results of the Requirements Determination Site Survey. It will normally consist of SOF (Special Forces, Civil Affairs (CA), and Psychological Operations (PSYOP)) and may include conventional forces from the U.S. Army (Engineers, and Explosive Ordnance Disposal (EOD)), the USN (Seabees), and USMC (EOD and CA). The geographic combatant commander works closely with the host country to support the NDO which:

• Serves as a central mine data and collection management center.
• Serves as a resource conduit.
• Coordinates mine action efforts and monitors progress.
• Consolidates and encourages host country interagency cooperation.

The U.S. Embassy manages, oversees, and coordinates the demining program in the host country, and closely coordinates the effort with the State Department, USAID and the geographic combatant commander, as appropriate. The Embassy is responsible for preparing reports on the expenditure of funds that have been allocated or otherwise assigned to it for humanitarian demining disposition. Such reports are to be submitted to PM/HDP, and should include information on progress achieved with the use of those funds.

Conduct demining training

Lead: Department of Defense/geographic combatant commander

Demining training programs funded by the Department of Defense and the geographic combatant commander focus on identifying and training host country personnel on the conduct, supervision, and the instruction of demining operations and procedures. To minimize long-term U.S. involvement and to ensure that the host country is capable of sustaining operations, training is conducted using the "train-the-trainer" methodology. Special Operations Forces normally conduct this training.

Conduct mine awareness training

Lead: DOS/PM/HDP/geographic combatant commander

Host country personnel are trained in procedures to develop and maintain a mine awareness campaign. PSYOP personnel conduct mine awareness training and provide mine awareness materials for DoD. The geographic combatant commander uses these forces to train the host country to sustain its own demining effort. DOS/PM/HDP and DoD use grantees or contractors to conduct mine awareness training.

The desired training end-state is to have trained host country personnel capable of developing and executing a host country-led mine awareness campaign.

Provide support to host country NDO

Lead: PM/HDP/geographic combatant commander

PM/HDP, through contractors or NGOs, and the geographic combatant commander's Civil Affairs personnel provide direct support and training to the host country NDO in program management, administration, logistics, supply management, maintenance, and data processing. The desired result is to have a fully functional host country NDO capable of managing the country's demining program.

Management Assessment Visit

Lead: Department of State

Department of State maintains oversight of all program management objectives throughout the life of a country's participation in the USG Humanitarian Demining Program. This is done in coordination with the USG country team at all times and appropriate participants such as DSCA and the CINCs when applicable. Management assessments would consist of the following:

• Application of USG NADR funds.
• Overall program milestones and status.
• Compliance with USG policy.
• Program measures of effectiveness.
• Continual commitment of host nation.

Provide Program Assessment

Lead: geographic combatant commander

Every November, the geographic combatant commander or his designated representative will be invited to attend a Humanitarian Demining Interagency Working session. This session is to provide an update on the humanitarian demining programs in his area of responsibility (AOR), as well as to provide a budget expenditure update (both OHDACA and NADR) on the previous fiscal year.

7. Reassessment

The seventh step in the process requires the IWG to determine the success of a particular program in a given host nation. For example, is the program ready for transition to sustainment, or is a period of retraining, provision of additional equipment, etc, necessary? Based on the results of the State/DoD program managers' Management Assessment Visit, the IWG will approve/disapprove movement of the program into the Sustainment Phase.

Transition program to Sustainment -- Milestone Event

Lead: Department of State

Once project goals and objectives are met, and the Office of Humanitarian Demining Programs, after consultation with the U.S. Embassy and the geographic combatant commander, has informed the IWG, DoD participation ends and the period of sustainment begins. Working with the country team, PM/HDP monitors equipment and other NADR requirements.

8. Sustainment

The eighth step in the process is sustainment. There are two types of sustainment:

• DoD sustainment: If a program involves DoD training, then the "DoD sustainment" phase has been reached when DoD trainers determine that the host nation has successfully created its own indigenous capability, and that the host nation can conduct demining operations without needing any additional training provided by U.S. forces.
• Overall sustainment: All programs, including State-only programs, reach "overall [USG] sustainment" when the host nation is successfully managing and conducting humanitarian demining operations, and can sustain those operations by directly soliciting donors for support, if national resources are insufficient. The U.S. can continue to provide appropriate assistance, consistent with U.S. priorities and available resources, even after the host nation has reached the overall sustainment phase.

9. Final Assessment

The ninth step in the process is the Final Assessment. Once the IWG has determined that the U.S. Government has achieved its objectives in a host nation, the IWG will dispatch a Policy Review Visit (PRV) to conduct a final program assessment. This team will be composed of Policy and Program personnel from the DOS and DoD. The Policy Review team will look at the entire program to ensure U.S. objectives have been met, that the country is, or is near to being, mine-safe, and will make an assessment of what policy or program changes need to be made for future country programs. The Policy Review team will make one of two possible recommendations to the IWG:

a. The HD program has met all objectives and is at end-state.

b. The HD program requires additional assistance from DoD, DOS or both. The assessment team will recommend what additional assistance is necessary, and a time period to provide the assistance. Once the assistance has been completed, a subsequent PRV will be sent.

Transition program to host country -- Milestone Event

Lead: Department of State

Once project goals, objectives, and exit criteria are met, the Office of Humanitarian Demining Programs, after consultation with the U.S. Embassy and the geographic combatant commander, informs the IWG. Working with the country team, PM/HDP then transitions the program to the host country (PRV recommended checklist is at Appendix D).

10. End-State

The tenth and final step in the process is End-State. End-state is defined for each country as the time the IWG reconsiders U.S. assistance. Generally, at the country level, it will mean that a country has reached a point where U.S. Humanitarian Demining assistance is no longer necessary from either a humanitarian or foreign policy perspective.

Normally, at end-state, the host nation has a fully established, self-sustaining, humanitarian demining program or it has eliminated the threat of mines/UXO to the local populace, and made significant strides in returning land to economic productivity. Post's public diplomacy efforts should promote the success of the country in achieving self-sustainment, highlighting the role of U.S. assistance. Such efforts would also encourage other countries receiving U.S. humanitarian assistance to reach self-sustainment.

The IWG will make a decision on End-State based on a recommendation from a Policy Review Visit.

Conclusion

This concludes the description of the program development process and its steps: Assess Strategy and Policy, Determine Requirements, Develop Plans, Allocate Resources, Pre-deployment training, Execute, Reassessment, Sustainment, Final assessment and End-State. The IWG, with input from all its members, continuously assesses the assistance effort by measuring and reporting progress throughout the life of the program.

Appendix A: Policy Assessment Visit

PAV Checklist

Principal Objective:

To make a recommendation to the IWG on humanitarian demining in a particular country.

Ultimate Objective:

To assess the landmine problem in a particular nation and to develop recommendations regarding the nature of any potential mine action assistance.

I. Explain the Program

• Visions/goals/prohibitions
• Interagency makeup
• U.S. Program overview
• Country specific criteria
• Factors in selection process
• Components of a HD program
• Exit Strategy

II. Country Goals and Objectives Summary

• What are the overall U.S. interests in the host nation?
• How important is this HN to the U.S. across its regional or subregional setting?

III. Policy Indicators

• Embassy's political assessment of the country (human rights, political rights, civil assessment)
• How stable is the government?
• Would a change of government likely affect a change in its support for the HD program?
• Stability, or are factions fighting?
• Anyone still using landmines?
• Has the government set demining priorities?
• Are the priorities in concert with U.S. objectives?
• Is HN threatened by hostile neighbors?
• Sustainability (country's long-range ability)?
• Infrastructure? Will it support vehicles, machinery and logistics?
• Is there a malfeasance risk?
• Which organization in the HN would assume responsibility/proponency for the HD program?
• Does this organization enjoy strong internal support?
• Does it have the capacity to absorb training?
• How does the public view it at large?
• Are there broader regional implications (good, bad, neutral) in establishing an HD program in this country?

IV. Nature of the Mine Problem

• Minefields
  -- Are they marked?
  -- What kind of mines?
  -- How much area do they cover?
  -- How old are the mines?
  -- Geographic and climatic impacts
  -- Population mine awareness
  -- Long term outlook

• Social Impacts
  -- Who are the most affected?
  -- Who is the target population?
  -- Impact on the repatriation of refugees
  -- What programs, if any, have been instituted for landmine victims?

• Economic Impacts
  -- How are roads and infrastructure impacted?
  -- Are mined agricultural areas preventing HN from growing its own food?
  -- Are mined areas preventing raising of livestock?
  -- Are interiors of villages and cities mined?
  -- Are rural areas inhibited from receiving humanitarian services?

V. Synopsis of Previous USG and Other Demining Efforts

• Effectiveness and scope of previous demining efforts

VI. Funding Data

• Allocations, Past, Current and Future
  -- Dollars contributed by US and others
  -- Dollars into O&M, FMF, USAID, PRM and IO
  -- Identify obligation of funds that have been made and those in the unexpected pipeline
  -- How money is spent on technical training, mine awareness equipment, etc.

• Comments
  -- Firmness of commitment in a particular country
  -- Possible identification of available options

VII. Other Relevant Data

• Are there other DOS, DoD, CINC or USAID HA programs related to HDO requirements?
• Specific outside needs the country may have in order to conduct HD operations
• Order to conduct HD Operations
• International organization involvement or other country involvement
• Would U.S. mine action assistance impact other donor's programs of assistance or their security assistance policy?
• Is the embassy aware that a program will create some workload burden for embassy staff? What is the capability of the U.S. embassy to manage the program? What is the commitment of the embassy to do so?

VIII. Other Donor Humanitarian Demining Assistance Activities

• What is the focus of the assistance?
• What is the level of effort and planning for the next few years?
• What other economic development needs to be done?

Appendix B: Policy Review Visit Checklist

PRV Checklist

Principal Objective:

To make a determination on the success of the U.S. government HD program in a given host nation, as well as determining what modifications should be made for future HD assistance.

Ultimate Objective:

Refinement of the HD program to ensure a sustainable, indigenous demining capability exists in a host nation after direct U.S. involvement ceases.

I. Review Overall U.S. Program

• Have the visions/goals/prohibitions been met?
• Are the country selection criteria valid?
• Are the components of a HD program adequate or should they be expanded?
• Is the exit strategy valid, and have we met the conditions for handoff of the program to the host nation?
• What lessons can be learned?

II. Country Goals and Objectives Summary

• Are the overall U.S. interests in the host nation program valid?
• Have we met our goals/objectives in this HN with regard to its regional or subregional setting?

III. Policy Indicators

• Was the Embassy's political assessment of the country on target? (human rights, political rights, civil assessment)
• Are there other political impacts that need to be considered in future programs?
• How effectively did the government set demining priorities?
• Were the priorities in concert with U.S. objectives?
• Could changes be made in the U.S. program that would help the country at a faster rate?
• Was there a malfeasance risk? If yes, how did we plan for it, and were we successful in preventing malfeasance?
• What organization in the HN assumed responsibility/advocacy for the HD program?
• Did this organization enjoy strong internal support?
• How well did it achieve the capacity to absorb training?

IV. Nature of the Mine Problem

• Minefields
  -- Are they marked?
  -- What kind of mines?
  -- How much area do they cover?
  -- How old are the mines?
  -- Geographic and climatic impacts
  -- Population mine awareness
  -- Long term outlook

• Social Impacts
  -- Who are the most affected?
  -- Who is the target population?
  -- Impact of the repatriation of refugees
  -- Impact on delivery of other humanitarian services

• Economic Impacts
  -- How well are roads and infrastructure being returned to productive status?
  -- Have mined agricultural areas preventing HN from growing its own food been restored?

V. Synopsis of Previous USG and Other Demining Efforts

• How has the effectiveness and scope of previous demining efforts impacted the U.S. HD program?

VI. Funding Data

• Allocations Past, Current, and Future
  -- What dollars were contributed by U.S.?
  -- How was money spent on technical training, mine awareness equipment, etc.

• Comments
  -- How firm was the commitment of the particular country?

VII. Other Relevant Data

• What are other DOS, DoD, CINC or USAID humanitarian aid programs related to humanitarian demining operations requirements?
• How did other international organization or other country involvement impact on the U.S. HD program?

VIII. Other Donor Humanitarian Demining Assistance Activities

• Were other donors providing any demining assistance?
• What was the focus of the assistance?
• What is the level of effort and planning for the next few years?

IX. Final Assessment

• What modifications to the U.S. HD program would make the effort more effective?

Appendix C: Glossary

AECA	Arms Export Control Act
AID Mission Directors	Responsible for United States Agency for International Development programs, including dollar and local currency loans, grants, and technical assistance.
Anti-Personnel Landmine (APL)	The term "anti-personnel landmine" means any munition placed under, on, or near the ground or other surface area, delivered by artillery, rocket, mortar, or similar means, or dropped from an aircraft and which is designed, constructed or adapted to de detonated or exploded by the presence, proximity, or contact of a person. The term "anti-personnel landmine" does not include command detonated Claymore munitions. (Leahy Amendment, signed into law February 12, 1996, "Moratorium on Use of Anti-Personnel Landmines," section 583)
ASD/ISA	Assistant Secretary of Defense, International Security Affairs
CA	Civil Affairs
CIA	Central Intelligence Agency
CINC	Commander in Chief. Commander of a combatant command. Addition of the word "geographic" [or regional] to CINC or combatant commander describes a combatant commander of a unified command that includes a general geographic area of responsibility; adding the word "functional" to a CINC or combatant commander describes a combatant commander of a unified command with functional responsibilities. (Joint Pub 0-2)
COA	Course of Action
Country Team	The senior, in-country, U.S. coordinating and supervising body, headed by the Chief of the U.S. diplomatic mission, and composed of the senior member of each represented department or agency, as desired by the Chief of the U.S. diplomatic mission.
Demining	The complete removal of all landmines from an area in order to safeguard civilian population. (Hidden Killers, 1994).
DoD	Department of Defense
DOS	Department of State
DOS/PM	Department of State, Bureau of Political-Military Affairs
DOS/PRM	Department of State, Bureau of Population, Refugees, and Migration
DSCA	Defense Security Cooperation Agency
EDA	Excess Defense Articles
EOD	Explosive Ordnance Disposal
FMF	Foreign Military Financing -- FMS on a grant basis.
FMS	Foreign Military Sales
Geographic Combatant Commander	See CINC
GHD	Office of the Special Representative of the President and Secretary of State for Global Humanitarian Demining
Goal	A goal is the purpose toward which an endeavor is directed. The organization derives strategic goals by analyzing the goals of higher headquarters, analyzing the current state of the organization, and determining how to attain the vision.
HN	Host nation
HDO	Humanitarian Demining Operation
Humanitarian Demining	The safe, effective, and cost-effective clearance of mines from land in order that life can return to normal. (Matt Matulewicz, International Conference on Mine Clearance Technology ( Denmark, 2-4, July, 1996), paper entitled Safety Standards for Mine Clearance Operations)
Interagency	USG departments and agencies involved in the USG humanitarian demining effort.
International Organizations (IOs)	Organizations with global influence, such as the United Nations, Organization of American States and the International Committee of the Red Cross. (From Joint Pub 3-08. Approved for inclusion in the next edition of Joint Pub 1-02.)
IWG	Interagency Working Group on Humanitarian Demining.
Landmine	Any munition designed and manufactured to be detonated after it has been laid by the presence, proximity, or contact of a person or vehicle. (Hidden Killers, 1994)
Mine Awareness Training	Teaching civilians, including children, how to avoid the hazards of uncleared landmines.
NADR	Nonproliferation, Anti-terrorism, Demining and Related Programs Appropriation of the State Department's Foreign Operations budget (Function 150)
NDO	National Demining Organization (a.k.a. Mine Action Center).
NMS	National Military Strategy
Non-Governmental Organization (NGO)	Transnational organization of private citizens that maintains a consultative status with the Economic and Social Council of the United Nations. Non-governmental organizations may be professional associations, foundations, multinational businesses, or simply groups with a common interest in humanitarian assistance activities (development and relief). "Non-governmental organizations" is a term normally used by non-United States organizations. (Joint Pub 1-02, DoD Dictionary of Military and Associated Terms and Joint Pub. 3-08, Interagency Coordination During Joint Operations)
NSC	National Security Council
NSS	National Security Strategy
O&M	Operations and Maintenance
OAS	Organization of American States
OASD/ISA	Office of the Assistant Secretary of Defense for International Security Affairs
OASD(SO/LIC)	Office of the Assistant Secretary of Defense for Special Operations/Low Intensity Conflict.
Objectives	Objectives clarify how goals will be met by providing a measurable focus. Objectives enable the development of performance goals. Each objective has one or more performance goals
OHDACA	Overseas, Humanitarian, Disaster and Civic Aid appropriation of the Department of Defense
OJCS	Organization of the Joint Chiefs of Staff
OMB	Office of Management and Budget
OSD	Office of the Secretary of Defense
PAO	Public Affairs Officer (USIS/DoD). Press and cultural affairs specialist who maintains close contact with the local press and with resident or visiting U.S. journalists
Private Voluntary Organization	Non-profit humanitarian assistance organizations involved in development and relief activities. Private voluntary organizations are normally United States-based. "Private voluntary organization" is often used synonymously with the term "non-governmental organization." (Joint Pub 1-02, DoD Dictionary of Military and Associated Terms and Associated Terms and Joint Pub 3-08, Interagency Coordination During Joint Operations)
PSYOP	Psychological Operations (a.k.a. Public Awareness).
RDT&E	Research, Development, Test, and Evaluation
Special Forces (SF)	U.S. Army forces organized, trained, and equipped specifically to conduct special operations. (Joint Publication 1-02, DoD Dictionary of Military and Associated Terms)
Special Operations Forces (SOF)	Those active and reserve component forces of the Military Services designated by the Secretary of Defense and specifically organized, trained, and equipped to conduct and support special operations. (Joint Pub 1-02, DoD Dictionary of Military and Associated Terms)
Train-The-Trainer Methodology	A concept for training instructors who then train other personnel in learned techniques. (Hidden Killers, 1994)
U.S.	United States
USG	United States Government
UN	United Nations
UNICEF	United Nations Childrens Fund; the UN focal point Mine Awareness Education
UNMAS	United Nations Mine Action Service
UNHCR	United Nations High Commission for Refugees
USAID	United States Agency for International Development
USIS	United States Information Service. Formerly the overseas arm of the United States Information Agency which was abolished on October 1, 1999; its functions were subsumed by the Department of State's new Office of Under Secretary for Public Diplomacy and Public Affairs. The term USIS continues to be used overseas due to its "brand" recognition so as to not confuse foreigners
USMC	United States Marine Corps
USN	United States Navy
UXO	Unexploded Ordnance
Vision	A guiding statement of an organization that represents the ideal state of the organization.