Stability Policing in Ukraine? EUROGENDFOR’s initial contribution

1. Context 

As a result of Russia’s aggression, the responsibilities of Ukrainian Law Enforcement Agencies (LEA) have significantly expanded, including up to combat missions.

After the liberation of occupied territories by the Ukrainian Defence Forces, law enforcers take over, coordinating and cooperating with civilian and military institutions. They gradually restore the Rule of Law, de-escalate tensions, and (re)build trust, fostering a safe and secure environment. 

These are tasks associated with the Stability Policing concept[1]. They require enhanced robustness, competences, organisation, and equipment, as well as specific tactics, techniques and procedures (TTPs), to tackle unique security challenges, while improving their interoperability with the Armed Forces.

To fulfil these duties, law enforcement officers need adequate training, clearly defined areas of responsibility, along with effective interagency coordination mechanisms. This is crucial to increase efficiency, and optimize the allocation of resources, thus contributing to the war effort. 

Despite the remarkable success of several combat units constituted by law enforcers (e.g. Lyut Brigade from the National Police), the stabilisation of liberated areas should remain the priority for LEA, rather than frontline combat operations, at the risk of making it difficult to later restore the appropriate law enforcement mindset to thousands of officers, given the known transition issues[2].

1. EUAM Ukraine priorities and action plan on Liberated and Adjacent Territories (LAT)

Among the 7 military and 13 civilian ongoing missions[3] under the EU Common Security and Defence Policy (CSDP), the European Union Advisory Mission in Ukraine (EUAM Ukraine) is a priority[4].

Since 2014, EUAM Ukraine has been advising, mentoring, training, and supporting Ukrainian partners in developing a sustainable, accountable, and efficient security sector that strengthens the rule of law. The mission mandate was revised twice in 2022, following the Russian invasion. Recently, on 14 May 2024, the mandate was reinforced and extended, from 1 June 2024 to 31 May 2027, focusing on 4 priorities[5]:

• Security Sector Reform, in light of the EU accession process, by supporting the implementation of the Overarching Strategic Plan for the law enforcement sector reform[6];
• Integrated Border Management, to bring Ukraine’s legal framework in line with EU standards;
• International Crimes investigation and prosecution, including war crimes; and
• Liberated and Adjacent Territories (LAT) stabilisation, by supporting the capacity and resilience building of LEA.

EUAM support for the stabilisation of the LAT started earlier. In April 2023, the EUAM concept and action plan on LAT was approved in Brussels, with the aim of supporting the effective implementation of function throughout the county, balancing the citizens’ freedoms with security considerations, as well as ensuring a clear delineation of competences between civilian and military authorities.

The concept and action plan on LAT includes four work strands:

• Re-Establishment of Basic Infrastructure, Police Functions and Services, and the Rule of Law;
• Law Enforcement Post-Occupation Capacity Building;
• Capacity Building for the Investigation and Prosecution of International Crimes;
• Community Safety - Dialogue, De-Escalation, Reconciliation.

To boost EUAM’s effectiveness in implementing the abovementioned plan, the Mission drafted a Concept Note for the “Deployment of a Specialised Team to support EUAM Ukraine in the Stability Policing Training of Trainers (ToT)”[7]. Shortly thereafter, the Civilian Planning and Conduct Capability (CPCC) launched the Call for Contributions[8] and of the four applications submitted, the multinational Specialised Team (ST) presented by the European Gendarmerie Force (EUROGENDFOR), led by Portugal, was selected.

1. The Multinational Specialised Team from EUROGENDFOR

The EUROGENDFOR ST was composed by 10 experts, from 4 nationalities[9], with specific backgrounds, to implement the required capacity building programme. 

Between January and July 2024, the EUROGENDFOR ST joined EUAM Ukraine, with the mission to train Ukrainian LEA instructors, enabling them to subsequently conduct trainings aimed at preparing forces to stabilise conflict scenarios, thus enhancing the competences of more than 40.000 officers, according to Ukrainian estimates. 

The team's deployment to Ukraine included the ToT phase, followed by a period of monitoring and mentoring activities:

This was the first official deployment of uniformed personnel in Ukraine since the large-scale invasion of February 2022, thus showcasing a new level of determination in the EU's joint support to stabilise the conflict and assist Ukraine.

1. Implementation and feedback

The project was widely praised for its results, which led to the development of a new operational concept and the implementation of a common training curriculum for the Ukrainian LEA involved.

The ST implemented an intensive training program, in the field of Stability Policing[10], aimed towards a robust and flexible policing approach, paving the way for the establishment of mechanisms to effectively balance and coordinate the civilian and military forces responsible for the country's security, while also seeking to enhance the TTPs to be used when operating in highly volatile areas.

Training modules on the following topics were set up for the technical and tactical component:

1. Stability policing in conflict areas[11]; 
2. Safety and Security of movements; 
3. Special tactics; 
4. Explosive Risk Awareness; 
5. International crimes, War crimes and collaborators (as first responders); 
6. Tactical Medicine; 
7. Stress management and post-traumatic disorder mitigation; 
8. Communication and conflict management; 
9. Human rights and gender;
10. Communications;
11. UAV use and defence.

The program implemented followed a structured pedagogical approach based on the ADDIE model[12] (Analysis, Design, Development, Implementation, and Evaluation). 

Based on an analysis of the Ukrainian LEA’ needs, a tailor-made curriculum was designed and developed to address the specific challenges faced in post-conflict areas. The implementation phase included practical, scenario-based training sessions, while continuous evaluation allowed for iterative adjustments to enhance the effectiveness of the training. 

This systemic approach ensured not only the success of the program, but also its long-term sustainability, with Ukrainian trainers now being prepared to cascade the acquired skills to thousands of officers.

The training curriculum, as well as the training materials developed (and tested), were praised by all those involved.

The high level of satisfaction expressed by the Ukrainian partners, together with the recommendation of the EU mission, led the representatives of the Ukrainian Ministry of Internal Affairs (MoIA) to assume the rapid approval and dissemination of this training, as a new national reference, to be implemented in MoIA training centres throughout the country.

1. Phase I – Training of Trainers

During the first deployment (14JAN24 to 15MAR24), after a 2-week preparatory period with a visit to a LAT near the frontline[13], 6 ToT courses were conducted to enhance the competences of 162 trainers from the National Police of Ukraine (NPU), the National Guard of Ukraine (NGU) and the National Academy of Internal Affairs (NAIA) to strengthen their policing capabilities to perform their demanding tasks in the regions recovered from Russian occupation and adjacent areas, thus enabling the Ukrainian Armed Forces to focus on the frontline.

It was a dynamic process of training implementation, integrating evaluation and continuous improvement mechanisms, which led to adjustments designed to best meet the needs of participants.

At the end of the ToT phase, except for the course's duration, the feedback received from the participants was extremely positive and encouraging. The knowledge exchange was much welcomed by the Ukrainian LEA, as reflected in the results of the anonymous online survey used. Of the 160 responses received, most participants were very satisfied with the topics covered. The overall quality of the course was rated at 97,09%. Gathering the responses pointing to high satisfaction (scores 7, 8, 9 and 10), 96.8% of participants would recommend the course to their colleagues; 95.7% consider that the course met their expectations and 98.2% found the course very useful.

The project also attracted the presence of several media and high-level authorities who visited the integrated exercises during the ToT phase, also contributing to the achievement of mission objectives through Strategic Communications (StratCom)[14].

Based on the results and the high level of satisfaction, the Ukrainian counterparts requested to adapt the approach for Phase II, to use the remaining 04 ST experts to support the creation and testing of a new Pre-Deployment Training (PDT), based on the curriculum implemented by the ST, to be endorsed as the new standard for officers to be deployed in the LAT.

The willingness of the Ukrainian partners to jointly create a solid training product to improve future trainings was an outstanding opportunity to promote local ownership, foster interagency cooperation, while establishing a platform to delineate responsibilities that can improve the efficiency of the long-term work in the LAT. 

1. Phases II & III – Monitoring and Mentoring the new PDT

During phases II and III, a process of monitoring and mentoring was developed for the first courses delivered by the Ukrainian trainers (pilot and consolidation courses), in order to refine the curriculum and ensure a more efficient training dynamic.

In phase II (02APR24 to 10MAY24), the 2-week pilot PDT was entirely led and conducted by Ukrainian trainers, and had as Training Audience 20 Ukrainian officers (10 from NPU and 10 from NGU). The ST was asked to monitor the implementation, paying close attention to the content delivered and the methodology used, to make recommendations for improving the PDT package. Overall, the training was quite positive.

This was the 1st joint training activity among NPU and NGU. 

Nevertheless, the pilot PDT has brought out aspects that could be improved, mainly related to training management, methods and dynamics, as well as the contents of some modules. The limited time available for preparation and the fact that some trainers had not been involved in ToT before had an impact on the effectiveness of the training. However, a positive difference should be pointed out in modules delivered by trainers who had participated in the ToT. The Ukrainian colleagues also recognised the importance of improvement and welcomed the suggestions made.

Following the Pilot Joint PDT (JPDT), the ST presented an enhanced version of the curriculum and several recommendations for further improvement the new course. The Ukrainian counterparts responded by requesting the ST’s assistance in testing this enhanced version of the curriculum, and taking a more active role in managing the training by “co-leading its implementation”, to achieve a consolidated training package. 

This request led to the extension of the ST’s deployment for an additional 5-week period, constituting phase III (07JUN24 to 12JUL24), in order to further improve the effectiveness of the training, taking advantage of the “strong momentum established” based on the “successes achieved during the deployment of this Specialised Team.” [15]

The progress from the pilot to the consolidation JPDT was remarkable. To this end, it was crucial that the on-site preparation carried out one week before the training, bringing together the ST experts and the local trainers to ensure coordination, clarify the framework, enhance efficiency and improve the quality of the training materials. 

1. Key outcomes, way ahead and sustainability 

Despite the challenges associated with the environment’s volatility (and language barriers), the strong commitment to supporting our Ukrainian partners kept the ST motivated, productive, and focused on the future.

To ensure sustainability, increase efficiency and promote synergies, the EUROGENDFOR ST has developed the:

• Consolidated PDT Curriculum, with further minor adjustments derived from the consolidation PDT;
• PDT Implementation plan, as a living document to plan subsequent PDTs;
• Recommended list of module coordinators, based on the performance assessments carried out;
• Package of ready-to-use training materials, shared between institutions and directly with each ToT participant, via an online platform; 
• Solid outline of the Common Operational Concept for the Deployment of LEA to the LAT, aimed at promoting clear procedures for all stages of preparation, deployment, management and redeployment of police assets to the LAT, as well as a clear delineation of tasks and responsibilities (blue-box / green-box mechanism for defining areas of responsibility); and the
• Final report, providing a detailed description and evaluation of the project, together with several recommendations aimed at strategic and operational adjustments for the Ukrainian counterparts, EUAM Ukraine, EUROGENDFOR, and the CPCC/EEAS. The evaluation process highlighted areas for further development, enabling future phases to adapt and evolve, based on insights from the ST and lessons identified.

At the end of Phase III, during a presentation at the EUAM headquarters, the ST presented the final results of the project and a set of recommendations to high-level representatives from the Ukrainian Ministry of Interior, the NPU, the NGU, and the NAIA. These recommendations were tailored to incorporate feedback and lessons identified from the ongoing evaluation, ensuring that the project remains dynamic and responsive to the evolving operational environment.

Building on the foundations laid, the PDT curriculum was indeed endorsed at the Ministry level, representing a commitment to boost interoperability within Ukrainian LEA.

The Ukrainian trainers are now responsible for cascading the acquired competences to more than 40,000 members of the Ukrainian LEA (figure provided by the Ukrainian authorities).

To ensure effective and fast cascading, the ST suggested the creation of mobile training teams, as well as a training and research centre dedicated to Stability Policing, an initiative which the NGU is keen to take up.  

Further key strengthening activities where are also recommended, such as stability policing related training for commanding officers to employ and manage units and teams.

The activities foreseen in the joint implementation plan could also be subject to future mentoring and monitoring activities by the EUAM, to enable and maximise possible future EU assistance activities in LAT, keeping the doors wide open for new synergies arising from a clear assessment of needs.

The Common Operational Concept for the Deployment of LEA to the LAT now deserves to be consolidated whilst involving stakeholders to fully leverage its potential for improving the proficiency of Ukrainian forces. The NGU has military capabilities, which provide enhanced robustness and self-sufficiency. This allows the NGU to operate in harsh conditions, where logistical support is not available. Whereas the NPU has deeper police expertise, particularly in crime investigation and forensics. The combination of these features maximises the effectiveness of Units and Teams, thus promoting meaningful synergies, especially when stability policing modules are jointly planned and integrated, ensuring cohesiveness and efficiency.

Finally, on the lookout for continuous improvement, 44 lessons identified (grouped by phase) were described in the Final Report, with a view to: (i) enhancing future activities in this area, to underpin the impact of the training and maximise the effectiveness of the project; as well as (ii) improving future similar deployments of STs under the EU’s CSDP.

1. Encouraging acknowledgments

The High Representative of the European Union for Foreign Affairs and Security Policy / Vice-President of the European Commission, Josep Borrell, visited the training on 7 February 2024, in its very first phase and expressed his pride in the project.

During his visit to Portugal, on 28 May 2024, Ukrainian President Volodymyr Zelenskyy thanked the Portuguese GNR training team for their work in Ukraine. The team was in Portugal that day, having completed the second phase of the mission. 

The Head of EUAM Ukraine, Ambassador Rolf Holmboe, has repeatedly emphasised: “our wildest expectations have been far exceeded”, by the professionalism, dedication and bonds created by the ST.

1. Final remarks

The success achieved by the deployment of this EUROGENDFOR ST, tailored to strengthen the readiness of the LEA to fulfil the their duties in the LAT, deserves further reflection, with possible implications for the initiatives to be developed under the new EUAM mandate (2024-2027[16]), in favour of the consistency and sustainability of the project, considering EUROGENDFOR as one of the Mission’s partners for the near future, particularly in the scope of Stability Policing.

Moreover, sooner or later, after the conditions for a ceasefire have been defined, an interposition/monitoring scenario will emerge, requiring stability policing activities reinforced by external actors[17], possibly under the aegis of the EU (if in a civilian capacity framework) or the UN, where strengthening activities will be needed.

Communities in the LAT will benefit from the deployment of effective Stability Policing Units, capable of restoring a safe and secure environment in the regions. Ideally, both those formed by the Ukrainian LEA being immediately engaged, and, in the nearest possible future, reinforced by those formed by other European gendarmeries.

Fostering robust yet accountable policing is essential to promote the Rule of Law and uphold human rights, to build trust, and to enhance police legitimacy, fairness, and sense of justice among communities. 

Trust and legitimacy are critical for effective policing. Only officers who are accountable, respectful, and empathetic can build trust and positive community relations, bolster public support, crime prevention, and the overall safety and security of Ukrainian citizens.

[1] Vide, inter alia, “The future roles for Stability Police Units Workshop” (2005); EUROGENDFOR Operational Concept (2009 update); EU Guidelines for Rapid Deployment of Integrated Police Units (2012);  NATO AJP 3.22 (2016); UN Guidelines for Combined Military and Police Coordination Mechanisms in Peace Operations (2019); The role of Stability Policing in countering hybrid threats (2022)

[2] Daxe Jr, A., Robinson, M., Tapp-Harper, S., Biggerstaff, A., Daugirda, R., & Saltarelli, K. (2009). Employing returning combat veterans as law enforcement officers. Alexandria, VA: International Association of Chiefs of Police.

[3] https://www.eeas.europa.eu/eeas/eu-missions-and-operations_en 

[4] Council Conclusions on EU Security and Defence, 27 May 2024 

[5] https://www.euam-ukraine.eu/our-mission/our-priorities/ 

[6] Approved by President Zelenskyy on 11 May 2023

[7] EU Document WK 13584/2023 INIT of 20.10.2023 as amended on 26.10.2023.

[8] EU Document Ref. Ares (2023)7330178 – 27/10/2023

[9] Portugal – 4 Guarda Nacional Republicana; Spain – 2 Guardia Civil; France – 2 Gendarmerie Nationale; and Lithuania – 2 Viešojo saugumo tarnyba.

[10] Although the current doctrinal concepts exclusively foresee substitution or strengthening scenarios for Stability Policing, as those references were conceived having in mind the deployment of police assets for conducting missions abroad. Nevertheless, the context shows the same principles and TTPs are useful for the Ukrainian LEA while operating in the LAT, thus conducting “domestic” stability policing, coordinating actions with the traditional Military Forces in the conflict scenario. 

[11] In addition to the conceptual component (e.g. Effects-Based Approach to Operations; Integrated approach), tested coordination models (e.g. blue-box/green-box), and lessons identified from other crisis scenarios were explored (e.g. East-Timor, Iraq, Afghanistan, Bosnia-Herzegovina, Kosovo, Central African Republic).

[12] Branch, R. M. (2009). Instructional design: the ADDIE approach. New York: Springer. 

[13] https://www.euam-ukraine.eu/news/stability-policing-in-liberated-territories-euam-s-deputy-head-and-the-european-gendarmerie-force-in-snihurivka/ 

[14] Vide, inter alia: https://www.eeas.europa.eu/eeas/support-action-stability-policing-training-ukrainian-law-enforcers_en;  https://www.eeas.europa.eu/eeas/first-joint-pre-deployment-training-stability-policing-national-guard-and-national-police_en;  https://www.euam-ukraine.eu/news/training-for-stability-insights-from-helder-garcao-on-stability-policing-in-ukraine/;  https://www.euam-ukraine.eu/news/support-in-action-stability-policing-training-for-ukrainian-law-enforcers/ 

[15] EU Document Ref. Ares(2024)3683413

[16] European Council meeting conclusions - 21 and 22 March 2024.

[17] Aligned with the current doctrinal references [e.g. NATO AJP 3.22 (2016); Comprehensive EU concept for missions in the field of Rule of Law in crisis management (2003); or EUROGENDFOR Operational Concept (2009 update)].