Lithuanian National Plans and Priorities before the Summit

By H.E. Mr. Linas Linkevicius, Minister of National Defence of the Republic of *

e live in a constantly changing geo- the new challenges to the world commu- as well as to revising the preparedness of strategic environment. The recent nity. They reminded us of how vulner- rescue and health services. crises in Kosovo, Macedonia and the ter- able our open world is, how vulnerable The terrorist attacks against the USA rorist attacks against the USA demonstrate our democracies are, when faced with have changed the NATO alliance. First of the new challenges to NATO. Although forces that are prepared to seek the de- all, September 11th brought to an end NATO is, first and foremost, for collec- struction of our societies, values and hu- the post-Cold War era and increased in- tive defence, it is no longer an ordinary man lives. More and more often we have terdependence between the USA and Eu- military Alliance. The missions of NATO heard that free trade, global interdepend- rope. NATO, and particularly the USA, are no longer limited to traditional mili- ence, and economies without borders de- is preoccupied with the anti-terrorist cam- tary security. The international security creased relevance of national security and paign and how to deal with asymmetric situation prompts the alliance to steadily defence. The terrorist attacks have brought threats, which is a brand new challenge expand into other important functional national security into focus again. For for the Alliance. As of today, NATO en- areas such as crisis management or com- every nation, a high priority has been largement is not a top priority on the bating international terrorism. The Sep- given to analysing and diminishing the NATO agenda. But at the same time, there tember 11th terrorist acts, being the first vulnerability of national infrastructure are clear positive signals that the Septem- example of an asymmetric attack with a such as power plants, bridges, tunnels, ber 11th events by no means will slow global dimension, have brutally exposed government installations, industrial sites down or disturb the process of NATO * Prepared for a seminar held at the Baltic Defence College, Tartu, on October 16, 2001.

36 expansion. Quite the opposite, these new to make concrete, historic decisions with • This level of political support in- challenges have reinforced the relevance our Allies at the Summit in Prague”, he creases the U.S. power to lead the Euro- of the enlargement project. Acts of aggres- pledged. pean Allies towards admitting the Baltic sion serve as a direct proof that the NATO The freedom Consolidation Act, States into the Alliance next year. It sug- enlargement, aimed at expanding the zone adopted on November 7 by the U.S. gests, moreover, that a more comprehen- of stability and predictability and enhanc- House of Representatives, is the unprec- sive round of admissions is a politically ing common security, should proceed edented step of approving security assist- realistic goal for the next year’s summit. even more actively. ance funds (55 mill. USD) for the coun- A big debate is going on with regard The U.S. Secretary of State Colin Powell tries that aspire to join NATO. The three to Russia’s softening stance towards NATO in his letter to the Lithuanian Minister Baltic States were earmarked as recipients enlargement. Is it a turning point in the of Foreign Affairs has stressed that recent along with four other applicant countries U.S.-Russia relations? Is it likely that a new events “have not deterred the United States (, , and ) NATO-Russia partnership is emerging? from the purpose to forge a Europe truly from the Group. This legislation’s There is no single answer to those ques- whole, free and secure”. NATO Secretary political significance is fourfold: tions. Looking at the last few years, Rus- General George Robertson said at the • It demonstrates substantially broad sia has been an extremely reluctant part- Summit of NATO aspirant countries (the American support for NATO enlargement; ner of NATO, mainly working to obtain Vilnius Group) in Sofia, Bulgaria: “the • The share of the Baltic States in the advantages and influence from its strate- enlargement process will not be held hos- overall funding are proportionally higher gic partnership with NATO, without giv- tage by any terrorism or individual ter- than the share of the other four coun- ing anything in return. What we can see rorists. We are not going to be deflected”. tries, which reflects both the Baltic effort now, is that Russia has decided to line up In a message from the U.S. President in preparing for NATO membership and with the global coalition against terror- George W. Bush, sent to Sofia Summit, it political backing for their candidacies. ism. Statements by President Putin and was stated that his Administration is more • The timing of the vote, on the eve Foreign Minister Igor Ivanov have recently strongly committed than ever to the east- of the U.S.-Russia summit, was helpful in indicated that Russia is considering ma- ward enlargement of NATO in the light dissuading the Russian President Vladimir jor changes in its position towards the of the September 11th attacks against the Putin from trying to place NATO’s Bal- USA and NATO. Whether this will in- USA. “The United States will be prepared tic enlargement on the bargaining table. clude a Russian NATO membership in

37 the longer term is too early to tell. Dur- ment that the question of the Baltic NATO in achieving that. Lithuania’s eligibility ing his meeting with Lord Robertson, membership should be assessed. NATO for NATO membership is being strength- Putin made it plain that while he did not enlargement will help to create an alliance ened through a successful implementation like the idea of the Baltic States joining of democracies sharing and defending of the Membership Action Plan (MAP), NATO, he was not going to invest politi- common ideals. It is particularly relevant issued to the candidate countries at the cal capital in attempting to stop it. The to the realities of today. Lithuania wel- Washington Summit in 1999. Lithuania enlargement is generally regarded as wid- comes the Alliance’s decision to further is actively taking part in this process, and ening of stability: a larger NATO means a pursue the enlargement and extend new is currently in the third MAP cycle for more stable region, and Russia is coming invitations at the NATO Summit in Prague 2002. The achievements over the last two to appreciate the benefits of stability on in 2002 to those countries that have com- years clearly confirm that the MAP has at least some of its borders. It is increas- pleted their membership preparations. been a major success and a proper instru- ingly preoccupied with the turbulent Is- The readiness to assume membership ob- ment of preparations for membership. lamic south and, in a longer term, with ligations by the aspirant countries has NATO feedback on our progress through China. Putin now appears to feel that the been and remains a pivotal ingredient in the MAP constitutes a vital input and a benefits of close relations with the West the considerations over who is to be in- reality check for our further work. outweigh the drawbacks. The most impor- vited to join the Alliance. In retrospect, if to compare the three tant point is that the major problem of MAP cycles, the first one was a learning all the discussions is not an enlargement Lithuania’s preparations for process for both NATO and the aspir- itself but NATO co-operation with Rus- membership ants, as one would expect with any new sia. Putin backed a NATO proposal to set programme. During the second cycle, up a new body for deepening and widen- The current state of security affairs in NATO streamlined the process and pro- ing the relations between Moscow and Lithuania is arguably the best ever vided a set of genuine assessments. The . This is an invaluable opportu- achieved in history. The country enjoys Lithuanian Progress Report of the 2nd nity to deeply involve Russia in resolv- peace, relative prosperity, sustained eco- cycle of the MAP helped Lithuania to ing broader security issues. nomic growth and co-operative relations appreciate that the national plans, as well It is against these major changes and with foreign partners. Integration into as undertaken international commitments, trends in international security environ- NATO is one of the most important tools were more ambitious than resources per-

38 mitted. It was really ‘down-to-earth’ assess- concluding the Defence Policy Agreement, 45,6% of all foreign trade. Finally, at the ment of which goals were affordable and covering the period until 2004. The par- beginning of 2001, the EU authorities which were not. The 3rd round outlines ties expressed their support for NATO credited Lithuania’s economy as being a how the revised plans, prepared in line integration and defence reform and functioning market economy. These posi- with the Progress Report of 2001, will be obliged themselves to support maintain- tive developments prove that the coun- implemented. In Lithuania, the third cy- ing defence spending at the level of 2 % try is set on a track of prosperity and cle is regarded as playing a critical role in of the GDP. The general public endorsed sustainable economic development. the next enlargement decision to be made this agreement. The Public Relations Pro- in Prague. gramme, launched by our Government Political issues: two years ago, has already yielded encour- Priorities of foreign policy Parliamentary and public support aging results. According to the opinion polls, support for NATO membership rose Lithuania’s key foreign policy priori- The MAP process has positively influ- from 49% at the beginning of 2001 to ties, closely related to integration into enced the growth of the inter-ministerial the 64% by the end of the year. NATO, are promoting good neighbourly co-ordination within Lithuania and has The perspective that the budgetary relations and contributing to regional become increasingly important tool for constraints will not hamper the practical security and stability. Lithuania fully en- our government to build parliamentary implementation of the MAP is based on dorses the broad approach to security support for necessary resources, as well as encouraging economic figures. Over the outlined in NATO’s revised Strategic public support for NATO membership. past years, the Lithuanian economy has Concept and takes the principles of this Lithuania remains committed to allocate been showing clear signs of recovering Concept as a departure point in formu- 2% of its GDP for national defence. The from the Russian crisis of 1998. The Min- lating the objectives of its defence and Law on the National Defence Financing istry of Finance estimates a 4% GDP security policies. Lithuania supports the Strategy sets the defence expenditure level growth in 2001, while the estimated an- Alliance’s goals of reinforcing Euro-Atlan- of 1.95-2% of the GDP for the year 2001. nual growth rate of GDP for the year tic security and stability and preserving The continuity of Lithuania’s foreign, se- 2002-2007 is 4.7-5%. Moreover, the for- the transatlantic link, and directs its secu- curity and defence policy was declared last eign trade with the European Union (EU) rity policy to promoting good relation- May by all our parliamentary parties by has reached new heights and comprises ship with all countries in the Euro-Atlan-

39 tic region. As a result, for instance, all the expanding European Union. Thus al- vited to the biggest military exercises in state border and national minority issues ready today Lithuania forges its relations Lithuania (e.g. Baltic Challenge, Amber have been settled to the satisfaction of all with Russia as an integral element of Hope) on a regular basis. Meanwhile, the interested parties. NATO-Russia and EU-Russia partnership Russian military transit is proceeding This fully applies to Lithuania’s rela- and co-operation. It is in Lithuania’s in- without any major problems. Russia es- tions with the Russian Federation. The terest to contribute to a smooth develop- sentially complies with the rules set by main trend in this area has been building ment of the region by engaging it in the Lithuania. The legal framework for the transparency and mutual trust, based on co-operative projects, regional and cross- military transit currently in place also the principles of equality, reciprocal ben- border activities, and people-to-people leaves more latitude for Lithuania to en- efit and openness. By means of dialogue, contacts. It would also help to allay the sure that it does not become an obstacle Lithuania makes best of effort to demon- emerging Russian fears that the region to the EU or NATO integration. strate to Russia that the course towards might become closed or isolated as a con- In its relations with Belarus, Lithuania NATO membership and all other elements sequence of the EU and NATO enlarge- continues pursuing a so-called policy of of Lithuania’s security and defence policy ment. ‘selective engagement’, which implies main- are in no way directed against the legiti- It has always been Lithuania’s constant taining pragmatic relations that cannot mate security interests of Russia. Lithua- wish to have transparency and predict- be interpreted as a political recognition nia’s co-operation with the Kaliningrad ability in the defence-related dialogue of the legitimacy of the regime established Region of the Russian Federation, in the with Russia. In 2001, a bilateral agree- by President Alexander Lukashenko. framework of regional co-operation, is a ment was reached on additional Confi- Lithuania does not want Belarus to be success story. It is being continuously dence and Security Building Measures isolated on the international arena, as it emphasised that the Kaliningrad exclave (CSBMs). The countries exchanged ex- would not help its eventual democratisa- should be further demilitarised and re- tra quotas for the evaluation visits un- tion. In the military realm, similar CSBMs ceive new economic impetus. Over the der the OSCE Vienna Document’99, and as with Russia have been agreed upon with recent years, Lithuania has been working agreed to exchange information on mili- Belarus, which puts substance into the to make the Kaliningrad Region a ‘win- tary forces in Lithuania and Kaliningrad overarching principle of ‘selective engage- dow of opportunity’ and model for a in the format of the CFE Treaty. The ment’. ‘Selective engagement’ also includes wider co-operation between Russia and Russian military observers are also in- sending and receiving military observers

40 to the military exercises and practical co- tension of the NATO Integrated Military contributing to building security in Eu- operation between the border guards in Structure in the region, once Lithuania rope, Lithuania also continues active in- combating illegal trafficking of people and and other two Baltic States have been ac- volvement in the OSCE dialogue and par- goods as well as co-operation between the cepted to NATO. ticipation in long-term missions in Geor- NGOs and other activities. Since 1994 Lithuania has been contrib- gia, Kosovo and Moldova. uting to the UN and NATO-led peace sup- Lithuania pursues the parallel course Defence co-operation with NATO port operations: UNPROFOR II in towards the EU accession and makes a and Partner countries , IFOR and SFOR in Bosnia- contribution to the development of the Herzegovina, KFOR in Kosovo, and European Security and Defence Policy Lithuania has developed a robust net- AFOR in . Today, the Lithuanian (ESDP). In Lithuania’s view, strengthen- work of regional defence-related co-opera- troops are deployed in Bosnia and ing ESDP does not mean duplication of tion with many NATO and Partner Na- Herzegovina (SFOR) together with the or competition with NATO structures. tions. Increasing involvement in the ac- Danish contingent, and in Kosovo NATO remains the fundamental organi- tivities of the German-Polish-Danish de- (KFOR) together with the Polish unit. sation for European security. Creation of fence co-operation triangle, two strategic Lithuania is also providing a transport the European Rapid Reaction Forces is partnerships (with the USA and ), aircraft to NATO, operating from the air aimed at contributing to strengthening bilateral co-operation with partners in base in Naples (), to perform tactical of the Euro-Atlantic link and sharing the Europe, including, but not limited to, airlift support for KFOR/SFOR missions. burden of costs and responsibility. Lithua- NATO’s major European Allies, the Nor- With a view of increasing its ability to ef- nia continues to promote American in- dic countries, and the new NATO mem- fectively react to international crisis, Lithua- volvement in the European security ar- bers serve as the most prominent exam- nia is developing the National Crisis Re- chitecture and closer co-ordination be- ples. Internationally supported Baltic de- sponse System compatible with NATO. By tween NATO and the EU, the latter hav- fence co-operation projects with means of such practical contribution ing access to the infrastructure and assets and Estonia deserve special mentioning. Lithuania demonstrates its political soli- of the former, where NATO as a whole is Along with the combined Lithuanian- darity with the Alliance’s policy in the re- not engaged. In the EU Capabilities Pledg- Polish Battalion, the entire complex of gion and the readiness to act jointly with ing Conference, Lithuania offered to con- BALT-projects will become a natural ex- NATO forces. Under the same banner of tribute to the EU capabilities with the

41 same pool of forces that has been identi- ducting its comparative analysis in the fied for the Adapted Planning and Re- Legal issues light of the experience of different West- view Process (PARP). Lithuania proposed ern partners. Taking into account remarks operational assets that include the Lithua- In the legal sphere, Lithuania attaches by the Alliance experts and the Danish nian components of the Estonian-Latvian- great importance to the creation of nec- analysis, simplified and more transparent Lithuanian battalion BALTBAT and essary legal framework for integration into provisions of the Law on International Lithuanian-Polish battalion LITPOLBAT, NATO. The Government Commission on Operations, Military Exercises and other as well as a motorised infantry battalion NATO Integration has screened the Arrangements have been prepared and of Paneve¿ys, two naval vessels, one heli- Lithuanian national legislation and estab- approved by the Seimas (Parliament). In copter and two transport aircraft. Lithua- lished that the major legal acts, starting addition, Lithuania’s legal framework for nia set a special focus on adding small- with the Constitution, were not in con- defence procurement, prohibiting long- size land Explosive Ordnance Disposal flict with any obligations, which Lithua- term contracts, drew some criticism. As a (EOD) and military medical support nia would have to undertake under the consequence, the Seimas approved an units. This is meant as a menu list, from body of international agreements related updated law that would permit 3-year which the EU will be able to pick neces- to its future membership in NATO. contracts. sary assets. The bulk of the Lithuanian Lithuania’s Progress Report provided The development of a system of na- contribution is expected to meet the some critical remarks concerning legal as- tional laws providing the framework for Headline Goal deployability and pects of Lithuania’s future participation a national security and defence policy has sustainability requirements by 2003. In in both collective defence operations in also been completed. This includes the addition, Lithuania offers, with the im- accordance with the Article 5 of the Wash- National Security Concept, the laws on mediate effect, to the EU two of its na- ington Treaty and in Non-Article 5 ‘out- Organisation of the National Defence tional training grounds for the EU of-are’ operations, as legal and procedural System and Military Service, on Compul- troops training purposes. The overview barriers existed to deploy forces in a timely sory Service, on Total Defence and resist- and update of these proposed assets was manner. On the request of Lithuanian ance to Aggression, on Intelligence, on presented during the EU Capabilities Ministry of National Defence, the Dan- Protection of Classified Information and Improvement Conference (CIC) in Brus- ish experts prepared a study, reviewing others. The national Security Strategy will sels in November 2001. Lithuanian legislation in force and con- be in place by the beginning of 2002. In

42 2001, the State Defence Council approved to provide realistic and resource based ficient, reliable, and mobile Ground the Lithuanian Military Defence Strategy. tasks in the Annual National Plan. The Forces and small, mission tailored Air This Strategy was the missing link in the (NAC) Progress Forces and Navy. The Progress Report hierarchy of conceptual documents guid- Report has been immensely helpful in re- criticised the previous Lithuanian defence ing Lithuania’s security and defence viewing our defence development plans plans for four combat brigades as too policy. However, it is a living document and modifying priorities. We found PARP ambitious. and some changes will inevitably be in- helpful in our force planning; the PGs The adjusted plans envisage a fully op- troduced in order to reflect the constantly were especially useful in aligning resources erational Reaction Brigade tailored for a changing strategic environment and en- among competing priorities. mission of reinforcement of our territo- sure that defence-planning staffs have the The main goal of Lithuania’s defence rial forces and fighting in potential Arti- best available basis to assess the defence reform is to find the best balance between cle 5 operations on Lithuanian soil or priorities. the capabilities required for the defence immediate neighbourhood under NATO of the state, carrying out peace time mis- command deployed by the end of 2006. Defence / military issues sions, present and future international Already by November 2002 Lithuania will commitments and the resources available provide a battalion-size NATO compat- During the second MAP cycle, Lithua- to support and sustain these capabilities. ible unit to be deployed for Article 5 nia has made progress in developing com- Key words for the new structure of our operations as a part of the Allied force mand, control and communication sys- armed forces are realistic and achievable. outside the Lithuanian territory. Mean- tem, new force structure, professional are being pre- while, Lithuania continues its participa- military education, training and doctrine, pared for self-defence and will be capable tion by company-size contingents in logistics, infrastructure, airspace surveil- of engaging in the full spectrum of the NATO-led international crises response lance and control, and the quality of life Alliance’s missions: to conduct Host Na- operations on a rotational basis. Under for the military. At this stage, the need to tion Support (HNS) operations, training the revised plans, a unified and effective prioritise in developing the national de- for international crisis response/ Peace chain of command can be best assured fence system became an imperative. Support Operations and Article 5 collec- with an organisation consisting of two Lithuania’s highest priority in implement- tive defence operations. The priority has military regions (Western & Eastern) with ing the Partnership Goals (PGs) is the need been given to the development of the ef- the elements of mobile (regular) and ter-

43 ritorial forces (the National Defence Vol- tions (reception of possible partner rein- • To implement the 3D medium range unteer Forces - NDVF) and one mobile forcements): air surveillance radar procurement project. Reaction Brigade for reinforcement in the • To ensure defence of the 1st Air Base These objectives constitute the core of direction of a possible conflict. In this from air threats and continue formation the national plans and are central for the respect, integration of the NDVF into of the Air Defence Battalion; Lithuanian ANP and PARP. The PARP is regular forces is a paramount task. Terri- • To develop infrastructure of 1st and the principal tool of implementing the torial defence forces will be under the 2nd Air Bases; MAP and developing Lithuania’s defence command of the military regions. Once • To prepare the Navy infrastructure forces to meet NATO standards and, par- reorganisation has been completed, the for HNS. ticularly, to prepare for the Alliance’s col- peacetime strength of Lithuanian Armed • A further development of a central- lective defence planning practices. forces will be over 16.000 (active reserve - ised logistics system: no more then 25.000). It is worth men- • Ensuring participation of military Resource issues tioning that recently the Ground Forces units up to a company size in NATO-led Commander has been appointed. He has crises response operations and, from The ability to finance the future plans full command over the Ground Forces November 2002 onwards, participation and programmes and to ensure that the including the NDVF. In wartime, the of military units up to a company size in most cost-effective resource options are Ground Forces Commander would assume collective defence operations outside the chosen is a precondition for the estab- responsibility of the overall Operational Lithuanian territory; lishment of efficient Armed Forces, capa- Commander. • To enhance logistic support of the ble of undertaking the assigned tasks. Re- territorial forces. source management is being carried out Among other objectives in the devel- • Development of the training and edu- through the Planning, Programming and opment of the national defence system cation system: Budgeting System (PPBS), which includes there are: • Development of an effective air space strategic planning, resource allocation ac- • Establishment of an effective reserve monitoring and control system: cording to the programmes, financial training and mobilisation system; • To integrate BALTNET into NATO management and performance evaluation. • Preparation of infrastructure, per- Air Space Surveillance and Defence Sys- The PPBS ensures that maximum defence sonnel and procedures for HNS opera- tem; capability is achieved in the most efficient

44 and cost effective manner. In accordance ing those under the Article 5. To quote with the PPBS, all of the defence objec- one NATO official, “NATO enlargement tives are covered by nine long-range State is a political decision but military reform Security Enhancement Programmes and will result in a political message”. accompanied by the performance criteria in five areas: manpower (individual train- ing), collective performance, armament and equipment, deployability and sustainability. These criteria are applied to the Land Forces, Air Forces, Navy and logistics to evaluate both the quantitative and qualitative progress in achieving ob- jectives. From these defence objectives programme co-ordinators derive their specific tasks and undertake activities to be completed in support of them. The enlargement process continues to play a vital role in shaping the progres- sive transformation of military establish- ments of Central and Eastern Europe. Both the MAP and PARP have helped to create a structure of defence reform and inter- departmental co-ordination. Lithuania has an affordable plan, is resourcing it and is implementing it to build its cred- ible defence forces and be ready to as- sume international commitments includ-

45