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De Evolutie En Toekomst Van De Belgisch-Nederlandse Marinesamenwerking: Spill-Over En Politieke Samenwerking

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De Evolutie En Toekomst Van De Belgisch-Nederlandse Marinesamenwerking: Spill-Over En Politieke Samenwerking VEILIGHEID & STRATEGIE Nr 111 SÉCURITÉ & STRATÉGIE November 2011 De evolutie en toekomst van de Belgisch-Nederlandse marinesamenwerking: spill-over en politieke samenwerking. Kapitein Pieter-Jan Parrein Koninklijk Hoger Instituut voorHoger Koninklijk Instituut Defensie 1 2 ISSN : De evolutie en toekomst van de Belgisch Nederlandse marinesamenwerking: spill-over en politieke samenwerking Kapitein Pieter-Jan Parrein Koninklijk Hoger Instituut voor Defensie Studiecentrum voor Veiligheid en Strategie Renaissancelaan 30 1000 Brussel 3 4 Executive Summary The Belgian-Dutch Navy cooperation is with 11.000 military personnel only a defence cooperation of limited size. Still, this cooperation could be of great importance for people who want to get a better understanding of European military cooperation since it was able to develop its own spillover dynamic that made an ever deeper cooperation possible. As the central capabilities of the binational cooperation, namely the mine hunters and multipurpose frigates, were brought into line, a cooperation developed for military instruction, material-logistic support and operational steering, training and working-up. The spillover dynamic also pushes towards defence-wide and cooperation on the political level of defence. Initiatives from the heads of the Belgian and Dutch Navy gave the cooperation a new impetus after the Cold War and currently the defence-wide spillover from the navy cooperation is complemented by top-down initiatives to obtain a defence-wide Benelux cooperation. In this study, we will also emphasize that a rapid evolution towards a cooperation on the political level is a necessity in support of the military capabilities of the Benelux countries and as such the position of the Benelux in international security. In the current state of affairs, important top-down initiatives to deepen the cooperation could give an additional impetus to a more European defence. De Belgisch-Nederlandse marinesamenwerking is slechts beperkt in grootte met samen ongeveer 11.000 militairen. Toch is deze samenwerking mogelijk van groot belang voor mensen die proberen een beter inzicht te krijgen in Europese militaire samenwerking aangezien deze een eigen spill-overdynamiek kon ontwikkelen die stelselmatig zorgde voor een verdere verdieping van de samenwerking. Vanuit het gelijker worden van de centrale capaciteiten van de binationale samenwerking, namelijk mijnenjagers en fregatten, kwam het tot samenwerking voor onderricht, materieel-logistieke ondersteuning en operationele aansturing, training en opwerking. Vanuit de marinesamenwerking is er ook spill-over naar defensiebrede en politieke samenwerking. Sturing vanuit de marinetop van België en Nederland gaf de marinesamenwerking een nieuw elan na de Koude Oorlog en momenteel wordt ook de defensiebrede druk vanuit de marinesamenwerking gecomplementeerd door top-downinitiatieven om een defensiebrede Benelux-samenwerking te verkrijgen. In deze studie willen we benadrukken dat zo een samenwerking ook 5 op het politieke niveau er best zo snel mogelijk komt in dienst van de militaire capaciteiten van de Benelux-landen en bijgevolg de plaats van de Benelux in de internationale veiligheid. Belangrijke top-downinitiatieven die terug een versnelling van het verdiepen van de samenwerking moeten bewerkstelligen, kunnen in de huidige stand van zaken een bijkomende impuls geven aan een meer Europese defensie. Sleutelwoorden: Admiraal Benelux, marine, België, Nederland, Europese defensiesamenwerking 6 Inhoudstafel Executive summary 5 Inhoudstafel 7 Lijst van afkortingen 10 Lijst van figuren 14 Inleiding 16 DEEL 1: Het ontstaan van de Belgisch-Nederlandse marinesamenwerking (1944-1991): binationale samenwerking vanuit een NAVO-kader 19 1.1. Het ontstaan van de Admiraal Benelux 21 1.2. Het ontstaan van de Belgisch-Nederlandse marinesamenwerking rond mijnenbestrijding 26 1.3. Het ontstaan van de Belgisch-Nederlandse fregattensamenwerking 32 1.4. BENESAM (1972): een overkoepelende structuur voor de Belgisch-Nederlandse marinesamenwerking 35 1.5. Nationale specialisatie voor onderricht en logistieke ondersteuning 37 1.6. Belgische fregatten in het Nederlandse eskader: een eerste stap in gezamenlijke operationele aansturing, opwerking en training 43 DEEL 2: Het uitbouwen van een permanente binationale gestructureerde marinesamenwerking (1994-...) 47 2.1. Het einde van de Koude Oorlog: een dwingende opportuniteit voor meer binationale samenwerking 49 2.2. De Admiraal Benelux-structuur als permanente gezamenlijke structuur voor operationele aansturing, opwerking en training 54 A. Een binationale structuur 54 B. Een toch niet zo binationale invulling van deze structuur 62 C. Het gezamenlijk opereren van de operationele vloten en nationale soevereiniteit 67 2.3. Identieke middelen en een doorgedreven taakspecialisatie voor de ondersteuning 73 A. De binationalisering van het militaire marine-onderricht 74 B. De evenwichtige verdieping van de logistieke taakspecialisatie voor de M-fregatten en mijnenjagers 79 i. Het MATLOG-akkoord (2006): een binationaler materieel-logistiek beheer 79 ii. Taakspecialisatie voor het uitvoeren van het onderhoud 86 C. ABNL-munitie voor de Belgisch-Nederlandse vloot: taakspecialisatie tussen evenwicht en doelmatigheid 89 D. Afstemmen van nieuwbouwprogramma’s, het vijfde en laatste punt van de 1994-verklaring 95 7 i. Een binationale vervangcapaciteit voor de CMT’s 96 ii. Een binationale vervanging van de M-fregatten 100 DEEL 3: Spill-over binnen en vanuit de Belgisch-Nederlandse marinesamenwerking 107 3.1. Spill-overmotoren van de marinesamenwerking 109 A. Institutionalisering: de fysieke motor voor spill-over 109 i. BENESAM: de exogene samenwerkingsstructuur 110 ii. Binationale endogene samenwerkingsstructuren 112 iii. Institutionele oplijning 114 Gelijke marinestructuren: werkt lekkerder 114 Identieke bedrijfsvoering, het noodzakelijke complement voor identieke systemen 117 B. Een binationale identiteit als niet-fysieke motor van militaire spill-over 120 3.2. Defensiebrede spill-over vanuit de marinesamenwerking 125 A. Samenwerking voor de Belgische en Nederlandse NH90-helikopters via BENESAM: de luchtcomponent in de samenwerking 125 B. Spill-over vanuit de marinesamenwerking naar landcapaciteiten 129 i. Het uitdragen van een landgerichte marinedoctrine via de Belgisch-Nederlandse marinesamenwerking 130 ii. Het versterken van de band tussen het maritieme en de Belgische landtroepen via de mariniers en NLMARFOR 132 iii. Nederlandse FRISC’s voor de Belgische Special Forces via BENESAM 136 3.3. Spill-over en politisering DEEL 4: De toekomst van de defensiesamenwerking tussen België en Nederland: defensiebrede en politieke samenwerking 141 4.1. Defensiebrede samenwerking vanuit het perspectief van de huidige marinesamenwerking 148 A. Defensiebrede pooling voor identieke capaciteiten: het voorbeeld van het uitbalanceren van de NH90-samenwerking via een C-130- samenwerking 148 B. Defensiebrede samenwerking en oplijning om de overhead in de ondersteunende stafdiensten te verminderen 150 4.2. De noodzaak en mogelijkheden voor politiek-militaire top- downsamenwerking tussen de Benelux-landen 152 A. De Benelux-defensiesamenwerking en de politieke noodzaak voor het behouden van defensiecapaciteiten in de Benelux 153 B. De noodzaak van politieke Benelux-structuren om negatieve spill-over tegen te gaan 159 i. Negatieve spill-over vanuit het politiek-militaire 161 8 ii. Negatieve spill-over vanuit de nationale defensie- industrie: het voorbeeld van de Nederlandse marine- industrie 164 iii. Negatieve spill-over vanuit de nationale politiek: het voorbeeld van het belang van communautaire evenwichten in België 166 C. Politieke defensiesamenwerking binnen bestaande Benelux-structuren 167 D. Het voorbeeld van een Benelux-NEO: Politieke samenwerking en het samenbrengen van bestaande nationale complementaire capaciteiten 171 4.3. Het sociale aspect van een Benelux-samenwerking 176 BESLUIT 179 BIJLAGEN 187 BIJLAGE A: Tijdslijn en domeinen van de belangrijkste Belgisch- Nederlandse marinesamenwerkingsakkoorden 188 BIBLIOGRAFIE 193 9 Lijst van afkortingen ABNL Admiraal Benelux ACOS Ops&Trg Stafdepartement ACOS Operaties en Training ACOS STRAT Assistant Chief of Staff Strategie/Stafdepartement Strategie AFNORTHWEST Allied Forces Northwest Europe ANTAC Analyse en Tactisch Centrum ART Amphibious Reconnaissance Teams AUV Autonomous Underwater Vehicle BeNe-CCSS Belgisch-Nederlandse Commissie Configuratiebeheer SEWACO-systemen Benechan Benelux Channel Command BENECUP Belgium Netherlands Capabilities Upkeep Program BENESAM Belgisch-Nederlandse Samenwerkings- akkoorden BENOPS Belgian Netherlands Operation Schedule C-ZSK Commandant der Zeestrijdkrachten CAWCS Centrum voor de Automatisering van Wapen- en Commando-Systemen CC Component Commander CC Sp Dept Catering BENL Belgisch-Nederlands Competentiecentrum Support departement Catering CCSS Commissie Configuratiebeheer SEWACO- systemen CDS Commandant der Strijdkrachten CHOD Chief of Defence CIMIC Civil-Military Co-operation CINCHAN Commander-in-Chief Channel CIS Commando & Information Systems CMT Chasseur de Mines Tripartite CODAM Centrum voor Operationele Data, Analyse en METOC COMBENECHAN Commandant Benechan COMOPSNAV Commandant Marine Operaties 10 COPS Centre d’opérations/Operatie Centrum CPIM Centrale Planning en Instandhoudings Management CSDE Combat Systems Division Europe CSR Common Staff Requirement CUP Capabilities Upkeep Program CZM Commandant der Zeemacht CZSK Commando Zeestrijdkrachten D-OPS Directeur Operaties
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