Polish - Romanian Military Cooperation

International Conference KNOWLEDGE-BASED ORGANIZATION Vol. XXIV No 1 2018

POLISH - ROMANIAN MILITARY COOPERATION

Tomasz BĄK

Instytut Analizy Ryzyka Wyższa Szkoła Informatyki i Zarządzania w Rzeszowie [email protected]

Abstract: Reborn after WWI, Poland needed to secure its borders properly against a potential enemy. As a result of the undertaken negotiations, the state strengthened the protection of its eastern border with a Polish-Romanian alliance. Before WWII, Romania was an important ally of Poland in the region and the only neighbour with whom Poland had a good relationship. Currently, both states are members of the EU and NATO, and their interests in security converge, especially in the face of deteriorating security in Eastern Europe. Closer military cooperation is also favoured by extensive political contacts and increasing expenditure on defence in both those states. In fact, Romania may well become the main ally of our country in the region within the next few years. [1]

Keywords: cooperation, military cooperation, Polish-Romanian alliance.

Introduction In autumn of that same year, the Romanian 1. Military cooperation of Poland and minister of foreign affairs contacted the Romania before WWII Polish government with a direct proposal of After the First World War ended, Polish cooperation within the Little Entente. Yet diplomacy faced the difficult challenge of the mission met with a full fiasco, as it ensuring strong borders of the reborn state. would mean the need for Poland’s Another objective was to define the place of cooperation also with the Czechoslovakian Poland in Central and Eastern Europe anew. diplomacy. At that time, Polish diplomacy The planned system was supposed to be were not fond of Czechoslovakia due to e.g. based on an alliance of Poland, Romania the trouble with Cieszyn Silesia. Thus the and Hungary. Yet an alliance treaty first attempt at Polish-Romanian agreement between Hungary and Romania could failed. hardly be expected at a time when Hungary Yet Romanian diplomacy did not surrender still held e.g. the annexation of the idea. Expansion from the East was Transylvania against Romania. becoming an ever growing danger for the After Poland signed a peace treaty with state. In that situation, the issue of an Soviet Russia in October 1920, Bucharest’s agreement with Poland was revived, and fears of aggression from the East Warsaw also wanted to benefit from the intensified. It was considered highly likely favourable circumstances in the desire to that Soviet troops would be used against ensure Poland’s eastern border for the Romania in the nearest future. That threat future. caused higher interest of Romanian By the end of November, the Polish diplomacy in closer relations with Poland. minister of foreign affairs started

9 developing a draft of the alliance treaty. binding both Poland and Romania, The draft provided for a Polish-Romanian concerning the transformation of the alliance which would include political, defensive alliance against Russia into a military and trade agreements and a general one, aimed also against Germany. confidential protocol. The Polish side, on the other hand, feared The political agreement was supposed to that it would be involved in a potential guarantee integrity of the eastern borders, Balkan conflict against its will. Both geographically separate for Poland and Romania and Poland were afraid that the Romania. Both states agreed to provide alliance might cause more harm than good, immediate military assistance to the engaging them into an unplanned war respective ally if the border were violated against their will. by a “foreign military force”. The scope of In January 1921, Polish diplomats assistance was to be defined in a separate presented a detailed project of a military agreement. A three-year validity period was convention, which included e.g. the planned for the political treaty. The treaty obligation of both sides to a joint defence was to be public, ratified and officially against Russian attack, regardless of its submitted to the secretary of the League of systemic form, and to providing ca. 85 000 Nations. soldiers by both allies (fourteen infantry The military agreement was meant to divisions and two cavalry ones) if the need specify the principles of military arise. Final provisions obliged both parties cooperation between the allies, and a to jointly conclude truces or peace treaties. detailed scope of the potential mutual The convention was initialled (not signed) assistance. The issue of a trade agreement by both parties. was not closely specified except for a plan The thus developed convention was to to have it signed at a later time. The some extent useless, since each ally could, confidential protocol assumed a in fact, evade providing actual military confirmation of border integrity between assistance at any time. the allies and neutralisation of any attempt On conclusion of the talks between military of Eastern Galicia to separate or become agents, it was time to develop a suitable independent. political agreement and adjust it to the Conclusion of the negotiations was delayed convention. The Romanian side issued a by the fact that Romanians feared Polish- statement to the effect that it was Hungarian friendship, which in their view consciously striving towards an alliance could be harmful to Romania in the future. with Poland, but wished to have no The pace of the negotiations was also relations with Hungary or Bulgaria. Both slowed down by a note from Russia which states took steps to obtain support for the reassured Romania of Russia’s peaceful agreement from France and Great Britain. intentions towards the state. Romanians France expressed a favourable stand in the also feared the possibility of being included matter, as it saw the future alliance as in the ongoing Polish-Soviet war. They complementing the Polish-French one. The were afraid that once they signed the two allies were apprehensive of the reaction treaties, their new ally might take further of British politicians, but that obstacle was military actions. also lifted. The Romanian side suggested adding an However, the Polish government was not in article to the public part of the treaty stating a hurry to conclude the matter, because that Romania could conclude separate signing a Polish-Romanian alliance during agreements, which could later evolve into peace talks with the Bolsheviks could cause alliance treaties. The confidential protocol serious complications at the negotiation would also have an additional provision table. On the other hand, they also waited

10 for conclusion of an alliance with France, no major differences from the one initialled which would strengthen Poland’s position on 29th January. It consisted of 11 in talks with Romania. The allies-to-be also paragraphs which defined e.g. specific preferred to wait for the right moment to times for mobilisation and assumed joint conclude the treaty. Polish-Soviet actions of the staffs of both armies in negotiations came to a deadlock, and mobilisation conditions. rumours from Warsaw brought news of a Thus the several-month-long negotiations planned offensive. Signing an alliance at brought results in the shape of a Polish- such a moment could result in immediate Romanian alliance which was to ensure the engagement of the Romanian army in the protection of our eastern borders. maelstrom of military actions. After five years since the treaty was first Finally, on 19th February the negotiations effective, both sides signed a “guarantee and settlements concerning the military contract” with a military annex named convention came to a close. An obligation “arrangements techniques” in 1926. [2] An was written into the political agreement to important political change as compared to have war declared by the respective party if the convention of 1921 was the obligation its ally was attacked, and to jointly of mutual defence in the case of any attack, conclude truces and peace treaties. A and not just one from the East. The military provision was also included that the part of the treaty assumed that the other alliance would be ratified by Poland only party would actively and automatically join after the negotiations in Riga were the war only in the case of an attack from concluded and a peace treaty signed, yet it the East. On 15th January 1931, the political would be effective from the moment of convention was prolonged without any signing in Bucharest. Signing a trade treaty major changes to the content. The modified was also planned, but it was not a priority arrangements techniques were signed in to the Polish government, hence the matter June 1931, specifying mutual obligations. was postponed. They provided e.g. for joining the war in Finally, the Convention on a Defence the case of an attack on the eastern border Alliance Between the Republic of Poland and of one or both states, even in the case of the Kingdom of Romania was signed on 3rd previous engagement in a conflict with a March 1921. The final version of the military different enemy, and if the attacker was convention was signed on the same day. other than the USSR, the parties were The convention on a defence alliance obliged to provide aid to the attacked consisted of eight articles and three partner in the area of supplies, transport and confidential protocols. They obliged the transit. The agreement was to remain in allies e.g. to provide mutual help in the case effect for five years and be automatically of an attack from the eastern borders. The prolonged if not previously terminated; thus convention established the obligation for 1936 saw an automatic prolongation. communication in the matters of foreign The resumed Polish-Romanian inter-staff affairs and relations with eastern conferences continued joint operational neighbours. The effectiveness of the treaty studies, work on the issues of material was set for five years, and the partners were cooperation, unification of armament and obliged to communicate in matters of equipment, matters of transport, transit, etc. concluding further alliances. That did not The allies also cooperated within concern treaties already in existence or intelligence, and the Polish arms industry under negotiations. As stated above, the placed serious deliveries of military treaty included three confidential protocols equipment in the market of the Romanian with detailed arrangements. The military partner. In 1932, Romania decided to convention, signed on the same day, held purchase several dozen of P-11 aircrafts

11 from PZL (Polish State Aviation Works), for 20 years. It had an automatic five-year and in 1935 a contract was signed for the prolongation provision. sale of Polish gas masks to that country. [3] After the war, both states were under the The treaties were automatically prolonged USSR sphere of influence and became for another five-year period in 1936. In a members of the Warsaw Pact in 1955. The practical dimension, both governments Treaty on Friendship, Cooperation and endeavoured e.g. to coordinate development Mutual Assistance between the People’s plans for military forces and principles of Republic of Albania, People’s Republic of operational cooperation. [4] Due to a highly Bulgaria, People’s Republic of Hungary, unfavourable development of the situation German Democratic Republic, People’s in Europe in the 1930s, the interwar Polish- Republic of Poland, People’s Republic of Romanian alliance was mainly of a Romania, the Union of Soviet Socialist symbolic significance. Both states were too Republics and the Republic of weak, both in a political and in a military Czechoslovakia became the basis for sense, for their cooperation to stop the military cooperation of Poland and German and Soviet aggression in 1939. Romania. On 6 IX 1939, Romania officially declared On 12th November 1970, another Treaty on neutrality in the new conflict, although it Friendship, Cooperation and Mutual agreed to the transit of military equipment Assistance was signed. It became effective supplies to Poland through Romanian on 15 III 1971. The treaty stated among territory. On 17th September, faced with others that in the case of armed attack USSR aggression, the Polish minister of against one of the High Contracting Parties foreign affairs released the Romanian side from any state or groups of states, the other from the alliance obligations in the name of High Contracting Party would immediately the Polish government, hoping Romania provide assistance with any and all means it would grant right of way to the Polish had at its disposal, including military authorities on their way West. Yet on assistance, as necessary to repel the armed crossing the Romanian border, Polish attack. government members were interned. Bucharest did not accredit its representative 3. Military cooperation of Poland and for Gen. Władysław Sikorski’s Polish Romania after NATO accession government in exile formed in France, but Currently, Poland and Romania develop it allowed the activity of Polish diplomatic their military cooperation, especially within and consular posts in Romania. That state their membership in NATO. Just like held until 4 XI 1940, when the posts were Poland, Romania has for many years closed at the demand of the Romanian supported American initiatives and actively authorities. That equalled breaking off any participated in them in military and official relations between the former allies. diplomatic areas, which naturally brings the two states closer. After the fall of the USSR 2. Military cooperation of Poland and and regaining sovereignty by the former Romania after WWII until 1999 communist states, Poland and Romania After the Second World War, cooperation developed mainly economic cooperation between Poland and Romania (including based on the treaty on friendly relations and the military area) was established by cooperation, signed on 25th January 1993. signing the Treaty on Friendship, Cooperation within defence was regulated Cooperation and Mutual Assistance by an agreement on cooperation within the between the Republic of Poland and the military area. People’s Republic of Romania. It became Only in the 2010s, after their accession to effective on 29 XI 1949 and was binding NATO (Poland in 1999, Romania in 2004)

12 and the European Union (Poland in 2004, Romanian authorities are very intensive. Romania in 2007), the two countries began The political cooperation forms a good to see the potential for cooperation within basis to develop bilateral defence security, including defence. High similarity cooperation. The cooperation of the two of positions in security issues was states within NATO is based on a common conducive to deepening the cooperation. position in key issues related to NATO That results to a large extent from a similar activities. Poland and Romania are mainly strategic environment (Russia as a interested in maintaining the defensive neighbour), historical experiences, energy nature of NATO, and in the face of Russia’s determinants (dependence on the supply of aggressive actions, in maximum Russian raw materials) and the need to enhancement of collective defence abilities catch up economically with the western EU based on art. 5 of the Washington treaty and states. Both states see their membership in strengthening the eastern flank of the NATO as the main outer pillar of their Alliance. At the Newport summit, Romania national security. Both view the role of the was Poland’s main regional ally who made Alliance mainly in the context of collective endeavours for the Alliance to adapt defence. Both Poland and Romania strive to strategically to the new situation concerning ensure that NATO retains the ability for security in the East of Europe. Very helpful defence operations based on art. 5 of the in developing a common position was the Washington treaty, which has gained eastern flank summit organised by the particular significance now, after Russian Polish president, Bronisław Komorowski, aggression against Ukraine. The on 22nd July 2014 in Warsaw. The cooperation between the two states is based participants included the presidents of among others on a strategic partnership. Poland, Estonia, Lithuania, Latvia, the A declaration to that effect was signed by Czech Republic, Slovakia, Hungary, the presidents of Poland and Romania [5] Romania and Bulgaria. on 7th October 2009, and the action plan [6] An example of mutual support within was approved by representatives of the NATO may be the fact that in 2008 Ministry of Foreign Affairs during a visit of Romania delegated 2 officers to work with the Polish president on 26th October 2010. the Multinational Corps Northeast in The declaration states e.g. that “the main Szczecin. [9] It also joined the NATO aim is to adjust NATO to new abilities and Military Police Centre of Excellence in missions in the area of the Atlantic and Bydgoszcz. The Polish army, in turn, have globally, as well as to enhance the political, one person in HUMINT COE (Human military and economic role of the European Intelligence Centre of Excellence) [10] in Union in areas of common interest” [7]. Oradea, Romania. Poland and Romania The cooperation is based on the Agreement actively participate in NATO’s programmes between the Polish government and the and activities. Both states joined the Romanian government on bilateral defence AWACS programme (Poland in 2008, cooperation, signed by the Polish minister Romania in 2011), which is the aerial of national defence and the Romanian component of the of NATO’s early warning minister of defence on 5th June 2013. It system. Allied reconnaissance aircrafts replaced the previous agreement of 1994, regularly use Polish airspace for concluded years before either state’s reconnaissance flights, they may use the accession to NATO, as the provisions of airport in Powidz, and 6 Polish soldiers that agreement did not quite agree with the work in the structures of the NAEW&C legal basis of NATO as concerned bilateral Programme Management Organisation cooperation between its members. [8] (NAPMO). [11] Also, along with 13 other Current political contacts of Polish and NATO members, both states participate in

13 the Alliance Ground Surveillance (AGS) 20th November 2013. The issues discussed programme, which is planned to be fully during the meeting included topics related operational by 2017 [12], and the Strategic to the progress of technical modernisation Airlift Capability (SAC) programme, the in Polish and Romanian armed forces, result of which was the establishment of a implementing the adopted armament unit of 3 C-17 aircrafts stationed in the programmes and current cooperation. The Papa base in Hungary. [13] Romanian delegation also visited the Polish The construction programme for the Defence Holding (PHO Sp. z o. o.), Polish European Phased Adaptive Approach Chamber of National Defence (EPAA) announced in 2009 provided for Manufacturers (PIPnROK) and WB four stages of its implementation. Within Electronics S.A. [15] In September 2011, the programme, the United States decided BUMAR (currently Polish Defence to build two land bases with SM-3 missile Holding Sp. z o.o.) and the Romanian launchers in Romania (by 2015) and in company UTI signed a contract for Poland (2018). cooperation within security systems, Since 2010, the ministries of defence of software for crisis management integration Poland and Romania hold expert systems, border and military facilities’ consultations concerning BMD (Ballistic protection and security, integrated solutions Missile Defence). The consultations are a for critical infrastructure (including power forum for exchanging experiences, mainly facilities), transport, petroleum mining, in connection with the legal aspects of power and gas networks, as well as joint cooperation with the US in that matter, as R&D activities. Another element of well as work on a holistic system of NATO cooperation were issues connected with missile defence. Several sessions of talks missile defence. The contract also covered a took place within that format. Romania range of non-military areas and could also potentially be interested in collaboration in third markets. [16] purchasing modern air protection systems, Moreover, PIPnROK holds talks with its considering the fact of Poland Romanian counterpart (Asociatiei patronale implementing the programme “Shield of romane a producatorilor de tehnica Poland”; Poland gaining such abilities militarapatromil, PATROMIL) on within the programme could open a new industrial cooperation within air defence (a potential area of cooperation development. relevant agreement was concluded in 2012, and later specified in more detail in an 4. Scientific, industrial and technical annex signed in June 2013). PIPnROK cooperation stresses the purposefulness of The Romanian arms industry is the second synchronising the plans of the Polish and biggest in Central and Eastern Europe, and Romanian enterprises, opening a dialogue it has similar problems as the same industry between users and producers in order to in Poland. Despite that, military repair and specify the initial equipment requirements, production companies as well as research and starting bilateral discussions of military institutes supervised by the ministries of users in order to choose a common air defence do not use the cooperation defence ground system or its elements for potential. A step in the right direction was both parties. [17] reactivating the Polish-Romanian Mixed Commission for Military and Technical Conclusions Cooperation in November 2013, after 16 Increasing the scope of military and years. [14] The Commission’s sessions took diplomatic collaboration between Poland place when the Romanian secretary of the and Romania may help obtaining better state for armament visited Poland on 19th– conditions of joint alliances and initiatives.

A closer military alliance with Romania context of NATO, cooperation with the may also facilitate talks with European USA and potential bilateral cooperation countries which have different priorities in within building national defence abilities issues related to national security and EU (of short and medium range). Both Poland security. [18] and Romania still lack national abilities Current Polish-Romanian relations within they could contribute to the NATO system, defence are characterised mainly by a high although Poland has started to build them, and still not fully used potential and contrary to its ally. Currently, Romania’s growing dynamics. They have been modernisation priority are multirole developing intensively only since Romania aircrafts (the purchase of F-16 and accessed NATO in 2004, and gained more modernisation of their intended station in dynamics after establishing strategic the air base in Fetești), but it is possible that partnership in 2009. The main areas of high the state will decide to modernise its air potential for closer cooperation are issues (and missile) defence system in the future, related to negotiating positions concerning as the currently used post-Soviet S-75 M3 technological modernisation of the army launchers and American MiM-23 Hawks and cyber defence (mainly in the area of were designed in the 1950s. The current strengthening defence abilities and the contribution of Poland and Romania to eastern flank) in NATO. NATO missile defence is their agreement to Due to the relatively broad powers of the grant the use of the land to locate elements presidents of both states within national of the system. After activating both bases in security and defence issues, contacts Devesel (2015) and Redzików (2018), between the state heads is a necessary participation in the project will be a natural element of good military relations. area for closer cooperation, which may Since 2011, contacts at the level of include joint exercises, exchanging presidential advisors for national defence experiences in base functioning, as well as have developed very intensively. creating legal basis for the presence of the The gradually increasing Romanian defence American forces in the particular state. budget and ambitious modernisation One of the growth areas in defence projects will set the stage for closer bilateral cooperation is cybersecurity. Due to the cooperation, with air force being one of the dynamic development of electronic systems potential areas. The Romanian government in every area of defence, but also of signing a contract of purchase of 12 used F- economic and social life, ensuring security 16 aircrafts from Portugal (for 600 million in cyberspace will be one of the major tasks euro) in October 2013 opened new for NATO states in the 21st century. It is possibilities in air force cooperation of thus the more important to seek partners for Romania and Poland. [19] Poland, which cooperation and exchange of experiences, has used F-16 for nearly 10 years, may be a and Romania has much to offer in the area useful partner for Romanian air forces of cybersecurity. Romanian services which regarding exercises and exchanging combat Internet dangers enjoy good experiences in the use and maintenance of reputation worldwide. the machines. The purchase of F-16 crafts There are good grounds for the defence will thus be a good occasion for joint cooperation of Poland and Romania to Polish-Romanian exercises (possibly develop more dynamically, especially in the together with the US), exchanging practical aspect. First, the bilateral relations experiences in exploitation of the aircrafts have a good, long history. The cooperation and perhaps in limiting maintenance costs. before WWII, even though it did not bring Another perspective area is air defence, spectacular results, is still indicated as a including missile defence, both in the positive example by both states. Second,

Poland and Romania have a practically full 1. performing the obligations within correspondence of security interests, both as security and defence as resulting from the concerns NATO and the European Union. membership of both discussed countries in The existing small differences (the main NATO and the European Union; ones being e.g. the attitude to Kosovo’s 2. projects aiming at NATO’s military independence, or promoting the Black Sea transformation; as a strategic direction by the Romanian 3. cooperation of arms industries, in government) currently lose their particular as regards modernising the armed significance in the face of other, far more forces and using the possibilities offered by serious challenges for the flank states. the European Defence Agency; Third, the recent years saw the development 4. consultations concerning the of political cooperation in a variety of effectiveness of multilateral actions within formats and with numerous bilateral visits. combatting modern threats to the It is high time now to fill the said formats international security environment; with content. Fourth, the growing threat 5. military and technical cooperation. from Russia is an impulse to revitalise An important factor in shaping mutual defence in Central and Eastern European relations between Poland and Romania countries. Poland and Romania both within defence is the Polish-Romanian understand that NATO security guarantees strategic dialogue, occurring since March do not exempt them from building national 2011. defence abilities and strengthening state The catalogue of areas for future defence resistance to aggression. They increase their cooperation between Poland and Romania defence budgets, which allows to includes e.g.: modernise the army and helps cooperation. 1. defence planning; Fifth, it has recently turned out that the 2. the functioning of the armed forces in cohesion of the principal formats in which modern democratic societies, including the Poland invested, such as the Visegrád application of provisions of international Group or Weimar Triangle, is questionable. treaties on defence, security and arms The sharp security crisis in Europe caused control; an increase of other partners who share the 3. peace and humanitarian missions as Polish perception of threat to a greater well as other operations of international degree. Those include Great Britain organisations concerning peace support and (particularly within NATO), Scandinavian combatting terrorism; countries (Sweden and Finland) and 4. organisation of the armed forces, Romania. It is thus worth investing in including military unit structure and HR defence relations (and more broadly – in management policy; security), both engaging in trilateral 5. logistic support for the needs of the cooperation including Turkey, as suggested armed forces; by the Romanian side, and engaging 6. military education system; Romania in formats in which Poland is 7. military personnel training; active. That would serve both to 8. activities within combat search and counterbalance tendencies disadvantageous rescue (CSAR); to Poland (e.g. in the Visegrád Group), and 9. research within defence technology; to build a broader coalition within NATO 10. development, maintenance and repair or the EU in matters of interest. of arms and military equipment; The Ministry of National Defence expects 11. modernisation and conversion of arms that further bilateral contacts within defence and military equipment; cooperation will be connected with the 12. military IT systems, information and following areas: communication technologies;

13. normalisation, quality control and 15. law and economy within defence. codification in the military; We are hopeful that the above will bring 14. military medicine and medical many tangible benefits for both states. support;

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[16] “E-RAPORT MSPO 2/2011 - Romania Dołącza Do Tarczy Polska”, 8th September 2011, http://www. altair.com.pl/mspo-report/view?article_id=343 [accessed: 09.03.2018]; [17] Kronika Wojska Polandego 2012 r., http://mon.gov.pl/z/pliki/dokumenty/rozne/2014/10/Kronika_2012.pdf [accessed: 09.03.2018 r.]; [18] Adam Burakowski - Na ile Romania może być partnerem Poland - http://www.omp.org.pl/stareomp/index2cc4.html?module=subjects&func=viewpage&p ageid=773 [accessed: 09.03.2018 r.]; [19] D. Donald, Romania finally settles on Portugese F-16, AINonline, 18 października 2015 r., http://www.ainonline.com/aviation-news/2013-10-18/romania-finally-settles- portuguese-f-16s [accessed: 09.03.2018 r.].