From policy to practice: How NATO joined forces with NGOs for the protection of civilians

North Atlantic Treaty Organization’s (NATO’s) active cooperation with non-governmental organisations (NGOs) on the protection of civilians (PoC) challenges the academic assumption that NATO’s decision-making structures are generally closed to civil society participation. What explains the decision of NATO officials to work with NGOs when developing a Policy for the PoC, and how did this cooperation take place? Combining insights from resource dependency and organisational learning theories, we explore whether and how concerns about public legitimacy and operational effectiveness can explain that NATO engaged with NGOs during its learning process on PoC. Methodologically, we combine data from 26 interviews with NATO officials and NGO representatives with a document analysis of 648 NATO publications. Our analysis shows that NATO’s collaboration with NGOs in the adoption of a PoC policy was very much a bottom-up process. Military commanders began engaging with NGOs on the ground during NATO’s International Security Assistance Force operation in Afghanistan (2001–2014). NGOs then gradually gained access to the formulation and institutionalisation of the PoC policy. While legitimacy concerns triggered NATO’s initial cooperation with NGOs, effectiveness concerns related to policy implementation facilitated stronger cooperation once the process was underway.