The Renewal of Sweden's Defence: Phase 2

THE RENEWAL OF SWEDEN’S DEFENCE: PHASE 2

Unofficial shortened version of the Government Defence Bill 1996/97:4 passed by Parliament on 20 November and 13 December 1996

1 The new Defence Resolution - The renewal of Sweden’s defence continues

The Defence Resolution for 1997-2001 has been drawn up in a new way. It is divided into two phases, with Bills being presented in autumn 1995 and autumn 1996. The first phase, passed by Parliament on 6 December 1995, set out Government principles for security policy, defence policy, total defence objectives, and overall issues concerning the shape, structure and economic scope of the defence system. Key issues were a unified view of military and civilian defence (“total defence”), the new demand for adaptability in both the short and long term in response to changes in the security situation, a new, broader definition of security to include severe peacetime emergencies, and increased focus on participation in international peace support and humanitarian operations. The guidelines for total defence drawn up by the Government can be summarized in four key terms: adaptability, a unified view, a democratic defence, and international commitments. The Defence Bill’s second phase has been based on these guidelines and on the 1996 security policy review, the Defence Commission’s In- ternational Change and Swedish Security Policy, and the plans drawn up by various authorities including the Armed Forces and the Swedish Agency for Civil Emergency Planning. In addition, a large number of municipalities and professional and other organizations have contribu- ted useful opinions. The second phase of the Defence Resolution has, like phase one, been worked out in close cooperation with the Centre Party. The Social Democrats and the Centre are in agreement on all aspects of the Reso- lution. The two parties are jointly responsible for the shaping of Sweden’s total defence for 1997-2001, thereby guaranteeing broad parliamentary support across party political borders. The economic framework set by Parliament in 1995 means a mode- rate saving of SEK 4 billion (4,000,000,000) kronor in annual defence expenditure compared with the 1994/95 financial year. This ten per cent saving, which is to be achieved by 2001, is justi- fied by the enormous changes there have been in the security situation since the end of the cold war, and by the not unreasonable demand that defence costs should be subject to the same stringent scrutiny as other social expenditure.

5 These savings mean, among other things, reductions in the military war organization and peacetime organization. The war organization will consist of 13 army brigades, 24 (eventually 20) surface attack vessels, nine submarines, and 13 fighter aircraft squadrons, which will eventually be reduced to 12 JAS 39 Gripen squadrons. The Government proposal for the peacetime organization represents a balanced overall solution. In formulating the proposal for the structure of the peacetime organization, two guiding principles have been the avoidance of uncertain investments and concentration on garrisons that can easily be expanded. In 1995 the Parliament decided that security policy reviews of the international situation should be carried out in 1996 and 1998. The Government now proposes additional reviews. The conclusions of the 1996 review were that armed attacks that could pose a threat to Sweden are unlikely; that uncertainty about international developments increases the demand for adaptability; and that no reasons exist for changing the direction of the defence policy. From this the Government concludes that sufficient resources have been assigned to the total defence, but that further savings cannot be proposed in view of the uncertainty about future developments.

The democratic popular defence is strengthened

The Defence Resolution is a well-balanced whole, and in important respects ground-breaking. The total defence system is organized in such a way as to meet the needs of today and of an unpredictable future. It will provide a modern and adequate defence against the threats of the future, not of the past. The total defence system shall deter attacks by foreign forces on our country, and shall repel them if they should still be made. At the same time, the combined defence resources shall contribute to the pre- vention of severe emergencies in peacetime, and to overcoming them if they should still occur. The defence forces should also be able to participate in our international peace operations. The new Defence Resolution makes the total defence system even more clearly an important social institution even in peacetime. Its democratic nature is strengthened. The ability of the total defence system to adapt to changing threats is of fundamental importance for the security and safety of our land and

6 people in an unpredictable future. Plans have already been drawn up for raising war capability within a year. Adaptation to a more serious situation in the longer term demands good analysis capacity, effective decision-making, planning and growth capability, and the continuous upgrading of equipment. In order to safeguard this the Government regards the following as essential:

• a review of the intelligence service • advanced research work • regular security policy reviews • an adequate national capability to supply defence materials • the retention of certain materials to be held in reserve • an army brigade, a patrol boat division and an aircraft squadron over and above what was set out in Parliament’s1995 policy statement • more officers than are necessary for the war organization.

The Government also proposes greater investment in defence technology. The Government maintains that it is of the greatest importance for both the upgrading of defence materials now and in the supply of materials in the future that Sweden and the Swedish defence industry are part of an expanding international cooperation on defence matériel. The civilian defence’s strength, effectiveness and ability to adapt are highly dependent on social stability and flexibility in peacetime. Therefore special emphasis will be given to improving robustness in the most important infrastructure areas. The fundamental importance the Government attaches to a broader definition of security and a unified view of defence is set out in more detail in the Bill on Planning for Severe Peacetime Emergencies (1996/ 97:11), which the Government presented to Parliament at the same time as the Defence Bill. The two Bills complement each other. The democratic approach to defence is strongly connected in the minds of the Swedish people to the obligation to do national service, these days some form of total defence service, which in turn contributes to maintaining a strong will to defend ourselves. Almost all men eligible for total defence service, where suitable, receive military or civilian defence training. This has averted the risk of a weakening of the conscription-based defence. The home guard and the voluntary defence organizations are an expression of the depth and breadth of the democratic will to defend. The expansion and revitalization of the home guard and the upgrading

7 of its equipment are important Government objectives. Peace support and humanitarian operations are among the most important tasks for the defence forces and constitute an important part of our security policy and our work for peace and solidarity. To strengthen the defence forces’ ability to carry out this task, the Armed Forces will establish an international command which will include a rapid reaction force. The Swedish Rescue Services Agency is given responsibility for disaster relief and the protection and saving of life, property and the environment, and for preparing civil relief forces for international missions. Training for peace support and humanitarian operations are coordinated where appropriate. Since the need for multifunctional peace support and humanitarian operations will almost certainly increase, the unified view of military and civilian defence will increasingly also come to permeate the international operations of the total defence system. Sweden’s active participation in the Partnership for Peace (PFP) increases our opportunities to cooperate with other states in peace support and humanitarian operations. The PFP is also increasingly important for security in the area around the Baltic Sea. A strengthening of all areas of security in the Baltic Sea region through European and international cooperation is in Sweden’s national security interest. Russia’s participation in the cooperation is important. Sweden will increase its support to the Baltic states and their defence forces.

Security policy and the end of the cold war

Sweden’s security policy situation has changed dramatically since the end of the cold war. Old threats to our national security have disappeared or been reduced. New opportunities for Sweden’s security policy have emerged. At the same time new risks and dangers to our land and people have arisen. Sweden’s non-participation in military alliances with the aim of making it possible for our country to be neutral in the event of a war in our vicinity remains unchanged. Through our non-participation and by maintaining an adequate defence system, Sweden will continue to contribute to the security and stability in the area around the Baltic Sea and in Northern Europe. It is not possible today to draw definite conclusions about future developments. This uncertainty will remain for some time. Even though

8 the risk of war between two superpower blocks has now disappeared, a number of regional conflicts which can threaten our security have flared up. Other factors also influence long-term security, such as environmental damage and water and food shortages. In Nordkalotten (the Arc- tic region of Scandinavia and the Kola Peninsula) there is what is probably the world’s largest collection of nuclear weapons and nuclear waste, which could pose a threat to the environment both regionally and globally. The UN is the only universal organization that can act globally. At the same time, however, the organization is undergoing a serious crisis as a result of several factors, including opposing interests among the member states, an inability to rationalize and revitalize the organization, and a financial crisis caused by certain member states, chief among them the United States, not paying their contributions. The risk of the proliferation of weapons of mass destruction, biolo- gical and chemical as well as nuclear weapons, remains. The Agree- ment on Conventional Forces in Europe, the CFE Agreement, was re- viewed in May 1996. This grants Russia the right to place considerably more heavy military material in its flank zones, something of immediate significance to the Baltic states in particular. Otherwise, the parties have observed their side of the agreement, which has led to arms reduction and a certain increase in openness. The EU is of fundamental importance for European stability and security. Through more permanent forms of cooperation between the nations and peoples of Europe, future conflicts can be avoided. In this context the enlargement of the EU is crucial. It seems unlikely today that all the member states of the EU could agree on establishing a common defence system, but the EU can play a greater role in humanitarian operations and rescue services, crisis management and peace-keeping operations. The IFOR operation has placed NATO centre stage when it comes to large-scale peace support missions. At the same time, NATO’s ability to adapt to new requirements is complemented by a sharper European focus. The IFOR cooperation and agreement on the direction NATO should take underline the fundamental importance American political and military undertakings have for Europe. It is important that the impending expansion of NATO does not create new dividing lines in Europe. The Organization for Security and Cooperation in Europe (OSCE)

9 has been given a more definite role as a regional organization as descri- bed in the UN Charter, with clear conflict-preventing responsibilities. Sweden is working to strengthen the OSCE’s essential role in Europe. Developments in Russia

Russian nationalism has intensified and a consolidation of its role as a major power seems to have taken place. Cooperation with the west is increasing, which is reflected in, for example, Russian participation in IFOR in former Yugoslavia. At the same time, Russian actions against the Baltic states, particularly Estonia, and in the Caucasus give cause for concern. The authoritarian tendency in Russian politics raises question marks about the future. The establishing of democratic institutions and judici- al, financial and other regulatory legislation is taking place relatively slowly. This and the political uncertainty are affecting economic development. There is a risk of reversals. At the same time, problems remain for the Russian armed forces, in particular the lack of economic resources and the lack of concrete plans for restructuring. Training and exercises are very basic, morale is low, and it is difficult to enlist sufficient recruits. The Russian armed forces receive very little new material. There is no shortage of modern defence materials in European Russia, a legacy that ought to last for very many years. But if things continue to develop as they have done so far, the capability of the armed forces will gradu- ally worsen. Most of Russia’s strategic submarines are based at the Kola Penin- sula in Nordkalotten. Open military conflict in the Kola region would lie dangerously close to the nuclear powers’ vital interests. Therefore it is unlikely that a conflict would begin in this area. In 1996 Sweden takes over the chairmanship of the Barents Euro-Arctic Council, which is an important forum for many forms of concrete cooperation with Russia. The intensification of Baltic cooperation

The end of the cold war did not lead to the stabilization of the security and military situation in the Baltic Sea region. Consequently, Sweden is a driving force in the work to establish widespread cooperation within

10 the political, economic, social and cultural spheres. The Council of the Baltic Sea States is acquiring an increasingly important role in cooperative activities which include coastal surveillance, measures to improve the safety of nuclear power stations, and the fight against international crime. Baltic cooperation occupies a more and more prominent position among Sweden’s international commitments. The cooperation is of crucial importance in supporting the region’s stability and security. The scope of the cooperation has continued to increase, and co- vers wide areas with broad points of contact at several different levels. The networks that are built up through cooperation and exchanges between governments, public authorities, non-governmental organizations and private individuals create strong public support for the cooperation and help to increase understanding. In order to support regional stability and security it is important that Sweden now also contributes to the expansion and intensification of Baltic cooperation. It is also crucial to security policy that Russia takes part in the cooperation. Similarly, the further expansion of the PFP cooperation through the participation of all the states in the Baltic Sea region - particularly the Baltic states and Russia - would be an important confidence-building instrument. Possible areas of cooperation with Russia could be peace support operations and PFP exercises, rescue services and environmental protection, the fight against organized crime, the democratization of the armed forces, and officer training and re-training. Sweden’s contribution to the security-enhancing cooperation has broadened in scope. From the early days of strengthening the Baltic states’ independence at a basic level - setting up structures and government authorities - Sweden’s support has moved on to consolidating and developing on-going projects and activities. Sweden’s contribution to the Baltic states has taken the form of donating radar stations and coastal vessels, all to strengthen coastal and border surveillance. Sweden, the other Nordic countries and Great Bri- tain have trained modern military units in a joint Baltic Peace-Keeping Battalion (BALTBAT). Sweden also holds three-year training courses for naval officers and, from 1997, for army officers. This and other contributions in the form of training and matériel contribute to increase cooperation. This will be further broadened and intensified through environmental cleansing and the fight against organized crime, illegal trade and smuggling.

11 Two key areas are seen for continued cooperation. The first area is the strengthening of the Baltic states’ border and coastal surveillance, which is important for a number of reasons. One reason is the fight against crime and smuggling; another is that as sovereign states the Baltic states must have control over their own borders. This security- enhancing support is an important element in Sweden’s support of the Baltic states’ efforts to join the EU. The second area is the organization of the armed forces under civil, democratic control. Here an important role is played by the BALTBAT project, as well as by experts from the total defence system and the various voluntary organizations’ contributions. It is obvious and of crucial importance to security and stability in the Baltic Sea region that the Baltic states should continue to be in every respect sovereign states with complete freedom to exercise the right to choose their own security policy solutions. But it must also be quite clear that Sweden cannot militarily guarantee the security of the Baltic states. International commitments

Organizing the necessary resources and preparing for international operations is - alongside the traditional tasks - one of the main tasks of the total defence system. The Government has made this quite explicit. Both the military and civilian defence should be able to organize quickly for different international operations. Coordination with the other Nordic countries is desirable. Sweden will continue to participate in peace-keeping operations mandated by the UN and the OSCE. Peace-enforcement operations are also possible in the future. NATO, the EU, the WEU and the PFP are possible instruments for cooperation in peace support and humanitarian operations. IFOR has brought a new dimension to peace support. Sweden should develop its capacity to work with NATO in this area. Increased cooperation in the defence industry

Sweden will increase its cooperation with other countries on defence materials. A domestic defence industry is in itself a security asset, but in order for it to be able to survive and maintain a high technological

12 standard, there must be increased international cooperation. Swedish membership of the Western European Armaments Group is also desirable. It would give a better overview of prioritized types of materials and give both the defence authorities and the defence industry better and simpler opportunities for cooperation and coordination. Sweden would be able to exert some influence through being able to take the initiative, formulate cooperation agreements, etc.

13 The renewal of Sweden’s defence

The duties of the total defence system are to protect us against armed aggression and to make resources available for peace-keeping and other operations. Total defence resources shall also be available to society in the event of a severe emergency in peacetime. The new threats we need to protect ourselves against today are not only armed attacks but also the unrest and political instability which have arisen since the end of the cold war. There is also an increased risk of terrorist activities and widespread violence, which sometimes lead to direct acts of war and consequent devastation and refugee emergencies. The development of events in former Yugoslavia is a recent example. In addition, there are other emergency situations that can threaten people, property and the environment in peacetime. In the Bill on Planning for Severe Peacetime Emergencies (1996/ 97:11), the Government outlines the foundations for a new view of security policy to cover emergency situations in peacetime. This means among other things that we create as stable a society as possible and - if a severe emergency situation arises - that civilian and military defence resources can be made effective use of.

Governing principles

• Adaptability A consequence of the difficulty of predicting security developments in the world around us is the need for the total defence system to be capable of adapting adequately to changing threats. This is the central idea in the Government’s proposals.

• A unified view Total defence consists of military and civilian defence. The broadened definition of security means that total defence resources should also be able to be utilized in the event of severe peacetime emergencies.

• A democratic defence The nation’s defence system should be the concern and responsibility of the entire population. Sweden should have a modern total defence where everyone contributes to the common defence effort. A defence system

14 manned by paid professionals can never create such strength and will to resist.

• Internationalization Sweden’s international work for peace and security is an increasingly important part of our national security policy. Participation in peace support and humanitarian operations is now one of the main tasks of the defence system.

15 Adaptability

Total defence capability shall be appropriate to the security situation. There shall always be an adequate preparedness to increase that capability in the event of a worsening of the security situation. If threats to Sweden diminish, we can reduce our national defence. If threats to Sweden increase, we shall strengthen our defence. In the current international climate there are very few military threats. But if the troops in our vicinity today were revitalized, we should be able to raise the war capability of all units within a year. The total defence should also be capable of long-term adaptation. This means that the duties of the total defence forces are different for different time scales. In the long term they should be able to counter an armed attack. In the short term, the Government has said, their task is to maintain our territorial integrity, be able to deal with the conse- quences of crises and conflicts in our immediate vicinity, take part in international peace support and humanitarian operations, and strengthen our ability to cope with severe emergency situations in peacetime. The ability of the total defence system to adapt in the long term is connected with the way the future is viewed. It must be able to deal with a wide range of possible courses of development. This also means that the total defence system cannot prepare for a specific possible future situation but must have a general ability to adapt. The civilian defence shall also be capable of adapting to the current security situation. The complementary measures for improving civil preparedness shall, to a greater extent than before, cover the most important infrastructure areas, such as electricity supply, telecommunications, information systems and command systems. The ability of the civilian defence to adapt is dependent on the stability and flexibility of peacetime society. That of the military defence, by contrast, must be brought about through special measures. These are both time-consuming and long-term, since they involve changes to infrastructure and advanced weapons systems. In order to be able to assess the situation in both the short and long term, Parliament and the Government have decided on regular security reviews. These are prepared for the Government by the Defence Com- mission, which consists of representatives of all the Parliamentary parties. If international circumstances alter quickly or are difficult to assess, reviews will be carried out more frequently.

16 It is necessary to have a solid basis of information in order to be able to make the right adaptations at the right time. Therefore advanced research work and an effective intelligence service are essential. If a threatening situation should arise, Sweden should receive ample warning. This is both because our international contacts are much wi- der today than in the past, and because our access to information is much greater. The Government’s capacity to analyze international developments will be strengthened. The total defence authorities will improve their planning for adaptation. Broadening the definition of security to cover the whole of society and the severe emergency situations it could face, means that the intelligence service needs to monitor new types of threats and risks. The new openness on developments in military defence means that information in that area is now much more accessible. More advanced analysis is now needed. The Government is therefore ordering a review of the intelligence service. In order to enhance the adaptability of the national defence the Government intends to expand the research that is today being carried out under the various authorities of the total defence system. The Government proposes a somewhat larger war organization than was proposed in the first phase of the Defence Resolution. The supply of qualified personnel is an important factor in the ability to adapt. There should therefore be 300 full-time officers over and above the immediate requirements of the war organization. Some materials in excess of those required for the present war organization will also be retained. It is important that we also have access to sufficient quantities of new, modern materials if the security situation were to darken and competition for weapons and other war materials increase. The Government has decided that, in connection with the 1998 review, further analysis should be carried out of the technological skills and materials required to guarantee defence adaptability. The Armed Forces will initiate a number of technology projects to facilitate adaptation. We will also ensure that we have national expertise in the field of explosives.

17 A unified view - a broader definition of security

Sweden has redefined its definition of security. The new, broader definition includes non-military threats and risks in addition to armed attack. The broadened concept leads to a broader range of total defence tasks. Total defence resources shall be structured in such a way that they can also be utilized to complement and strengthen our country’s ability to deal with threats and risks even in peacetime. Often the same knowledge, abilities and materials are needed both to guarantee vital public services in wartime and to deal with severe emergencies in times of peace. Therefore there is much to gain from planning and structuring total defence activities from the beginning so that they can effectively support peacetime society. The unified view of defence has guided the structuring of the Go- vernment Defence Bill for 1997-2001. Total defence resources shall both strengthen society’s ability to deal with severe emergency situations in peacetime and be able to be made use of in Sweden’s participation in international peace support and humanitarian operations. The Government’s Bill on Planning for Severe Peacetime Emergen- cies sets out in more detail some of the possible emergencies for which it is important that society is prepared:

• Radioactive fallout • Serious interruptions to the electricity supply • Serious interruptions to telecommunications • Serious interruptions to the supply of electricity and water to the health service • Serious interruptions to the water supply • Serious interruptions to radio and TV • Floods and dam bursts • Mass influx of asylum- and aid-seekers to Sweden • Severe epidemics • Terrorism • Chemical accidents and the release of dangerous substances into the sea • Threats to the security of essential computer systems. 18 A democratic popular defence Yes to national service, no to a professional army

Sweden shall have a defence system firmly rooted in the population, and not a full-time professional army. The Swedish total defence should be so constructed and organized as to be the concern of the entire population. It is of great importance that the people of Sweden feel responsible for and able, according to ability, to take part in the defence of their country. This is best achieved through a system based on national service. A country like Sweden, with a large land area and a small population, needs a relatively large defence system. Furthermore, since national service recruits come from widely different sectors of society, this method also helps provide the defence system with a broad range of knowledge and experience. In addition, national service also means that the defence system is firmly rooted in the people. A professional army cannot create the will to resist and the strength that a national defence system requires. In the Bill on the Renewal of Sweden’s Defence (phase one) the Government stressed that each year 30,000 national service recruits should be trained in the military sector and 10,000 in the civilian sector. In practice the total number of total defence recruits per year in recent years has been only about 38,000. According to the Armed Forces, the minimum number of military recruits required is 28,800. The Government wishes 29,000 to be assigned to the military sector. An experimental three-month national service recruitment training scheme for the home guard is being introduced. The reorganization of the defence system means that a certain reduction in the number of recruits is acceptable during a transition period. In 1998 and 1999 the numbers will be temporarily reduced by 4,000 per year. Eventually about 10,000 young people will be assigned to the civilian defence. During the period 1997-2001 the number trained will be progressively increased to 5,000 per year, about 3,000 of whom will join the civil emergency forces. When the 1998 security review is carried out, a new assessment will be made of the division of training needs between the military and civilian defence sectors.

19 Improved benefits

The conditions and privileges of national servicemen and women are dealt with in the Bill.

• The demobilization allowance is raised by 500 kr to 4,500 kr from 1 January 1997. • The housing supplement is raised by 100 kr per month. • The Government has promised better insurance cover.

The provisions for national service conscripts to receive unemployment benefit have also been improved. The exceptions which existed earlier when working out income on which the benefits are based have been reintroduced. At the same time only those conscripts who can prove their ability to pay before they were called up can receive housing supplement, which is a tightening up of the present regulations. Access to work or a university place on completion of basic training should be made easier. Conscripts should have close access to up- to-date information about job vacancies and opportunities to study. Computer linkups with employment agencies should be tested and eva- luated. The Government also believes in the importance of increasing collaboration between the total defence system and the universities and colleges, both so that training can, to a greater extent than today, lead to recognized civilian qualifications, and also to make it easier for conscripts to study in their spare time. Where possible, national service should fit in with the academic year. The importance of increasing the opportunity at all levels to influence what goes on is emphasized in the Bill. This will strengthen the defence system and broaden its democratic base. The Government has recently decided that the Swedish Conscripts Council and the Swedish Civil Conscripts Council may arrange congresses. The Soldiers against Drugs project receives increased financial resources and is being directed at all total defence conscripts.

20 Volunteers - an indispensable part of a democratic defence

The volunteer defence forces are an indispensable part of Sweden’s democratic defence. Together the volunteer defence organizations and national service training create the preconditions for a continued strong will to defend our nation. The voluntary defence organizations are exempt from the Government’s proposed cutbacks. However, a review of the system of financing will be carried out, where the link between government grant and defence benefit will be tightened. The Government is setting aside resources to support the possibili- ties for the volunteer defence organizations to increase their efforts in the Baltic states. The proposal is an important link in preventive peace- building in the Baltic Sea region and in establishing a democratic popular defence in our immediate vicinity.

The home guard and increased security patrolling

The Government wishes to support the continued revitalization of the home guard and to carry out a comprehensive upgrading of their equipment. The aim is a modern organization with 125,000 home guards- men. A short training course of conscripts for the home guard will be run as a trial. If it is successful it will open the way for young people to enter the home guard. The Government also wants the modernization of materials to take place more quickly. The Armed Forces must therefore try to achieve faster deliveries of their infra-red and signals equipment. Deliveries of the new uniform shall be completed in 1997. The home guard is also an important resource for protecting important sites. The Government is creating special platoons for such duties, and is raising the standard and capacity of the police reserve. The special platoons will be called in if and when the security situation is seen to be worsening. They should be made up of conscripts who no longer belong to military units. The aim is that there should be 40,000 people in the special platoons and 15,000 in the police reserve.

21 More women in the defence forces

The Government considers it desirable to increase the number of women in the defence forces. For this to happen there must be a broader base, that is the number undergoing recruitment training must be increased. One way is to spread more information to schools and through the media about the opportunities that are opening up for women to volunteer for national service and undergo military training. Wherever possible there should be women on each recruitment board. The network for women officers should receive support, both financial and administrative. The physical and fitness requirements for officer recruitment should be re-examined. The Creative Difference project, which is being run by the Armed Forces, should be extended. The purpose of the project is to influence attitudes. By taking advantage of differences such as those between male and female, the quality of the war organization is raised.

22 Defence in the service of peace

Sweden has a long and successful tradition of participation in UN peace support operations. The Defence Bill will lead to improvements in Sweden’s preparedness and our ability to fulfil this commitment as mandated by the UN and the OSCE. In this way we also strengthen our own security. Sweden should be able to take part in a broad range of operations, from providing armed personnel for peace support operations to civil and relief missions to strengthen local competence for reconstruction work after a conflict. The Armed Forces will establish an international command, built on SWEDINT (the Swedish Armed Forces International Centre). Its purpose will be to organize, train for and support peace support operations in which Sweden is participating. The international command will include an international force, large enough to be able to form part of an independent unit - a battalion - in a larger international force. Special staff units, and field units in such areas as mine-clearance, transport and medical care shall be organized by the international command. These special units should also be able to join in civil humanitarian operations. Countless armed conflicts could in all probably have been nipped in the bud if it had been possible to quickly send in an international peace force. Sweden’s international command shall include a rapid reaction force, consisting of a mechanized rifle company and a special unit which can be sent on international missions at short notice. We shall improve Sweden’s preparedness to participate in international humanitarian operations. To this end Sweden will work towards extended and intensified PFP cooperation, which will increase our ability to work together effectively with other countries in peace support and other humanitarian operations. The Armed Forces’ special unit for humanitarian efforts, Swedre- lief, will be transferred to the Swedish Rescue Services Agency, which will be responsible for carrying out disaster relief and rescue operations in other countries. We are developing civil reaction forces for international humanitarian efforts. The composition of these forces depends on the pool of

23 trained professionals and experts that is available in the present organization. There will be an increasingly greater need for so-called multifunctional peace support and humanitarian operations - that is operations involving coordinated and simultaneous military and civil efforts. Immediately after an armed conflict has ceased, military peace support operations dominate. Then, as peace stabilizes, the need for reconstruction assistance increases and it is the humanitarian contribution that dominates. But effective coordination between military and humanitarian efforts is always necessary. In order to support the necessary cooperation a special coordinator will be appointed to develop and assess the training for international operations. The coordinator will then suggest any necessary changes to the training.

24 Antipersonnel mines • total ban • stocks destroyed • mine-clearance unit established

The Government proposes a unilateral Swedish ban on all use of antipersonnel mines. A total ban is imposed, without exceptions and loopholes. The Government’s proposal for a total ban follows strictly the international definition of antipersonnel mines. All antipersonnel mines locked up in Swedish weapon stores are to be destroyed during the period covered by the Defence Resolution. This does not, of course, apply to mines used for research or instructio- nal purposes. A total ban means a reduction of defence capability. The Govern- ment is of the opinion, however, that a reduction should be carried out now that our country is no longer under the threat of military attack. More and more countries are questioning the future significance of antipersonnel mines. Sweden has been the driving force behind a total international ban on antipersonnel mines, and will continue to pursue the issue with undiminished energy. Only a global ban can prevent new humanitarian disasters. The Government proposes that a total defence mine-clearance unit be set up to coordinate and develop mine-seeking and mine-clearing capability. The mine-clearance unit will build on experience gained in both military and humanitarian work. A common pool of qualified personnel will be created, who can be quickly sent out on international mine- clearance missions. The unit will be a centre for research, development and the testing of new mine-clearing equipment. The unit should be able to offer training in ammunition- and mine-clearance to meet both the needs of the war organization and of peace support and humanitarian operations. Humanitarian organizations and foreign government authorities should be able to use the unit and contribute useful knowledge and experience.

25 Commanding the total defence

New demands will be made of the total defence command in the future. The broader definition of security means that new tasks will arise. In times of severe civil emergency, complex operations must be organized fast. International operations mean commanding forces in new and un- familiar environments. The armed aggression which can threaten us in the future will be characterized by surprise attack, rapid change and fighting over large areas. The command system of the future must be characterized by speed, flexibility and endurance. In the coming five-year period, therefore, important steps will be taken to improve command ability. The rapid development of information technology is an important precondition, but also a challenge. Methods of command must develop in step with the introduction of new technology. The civil and military sectors of the total defence system must form a unified system. An important precondition for this is the common computer communication system they will share. The IT world of the future will provide totally new preconditions for command and cooperation. The Government is therefore ordering a special analysis of the need for coordination and principles for cooperation within the total defence system. Such an analysis provides an important basis for an evaluation of inter alia the number of command levels. The Government does not propose any fundamental changes in the command structure. However,it does propose some reductions within the military command organization. The main change is that the number of defence regions is reduced from 26 to 16. A further reduction is expected when the county borders in the west of Sweden are redrawn. This will mean that the majority of defence regions will comprise two counties. The number of divisional headquarters will be reduced from six to three.

26 Military defence - modern and flexible

Aims and tasks

The tasks of the Armed Forces shall be to • defend the country against armed attack • maintain our territorial integrity • be able to carry out international peace support operations, and • be able to be used in the event of severe peacetime emergencies.

The long-term development of the security policy situation is difficult to predict. Therefore the military defence should be capable of adapting to future needs. In the present international situation military threats are strictly limited. Therefore not all the existing units have full war capability. However, the military defence shall be so prepared that most units can achieve full war capacity within a year. Preparedness, organization and planning will mean that the defence system’s long-term capacity can adapt, that is expand or change in order to meet future threats. The Armed Forces’ war organization

• Headquarters The headquarters, three joint commands and three logistics regiments are retained.

• The Army Three divisional headquarters and divisional units, and 13 army brigades are retained. The number of people in the territorial defence is reduced to approximately 90,000. The number in the home guard is increased to 125,000. Medium-range anti-aircraft defences will be developed so that procurement can begin during the period 1997-2001.

• The Navy The four naval commands are retained. 24 surface attack vessels are retained until the end of the period 1997-2001, when the number will

27 be reduced to 20. Nine submarines are retained, two of them in the matériel reserve. Six amphibious battalions are being organized. Three coastal artillery battalions and a heavy coastal missile battery are retained. The permanent coastal defence units are reduced to six battalions.

• The Air Force The command of the Air Force is organized into a central fighter command unit and three air command headquarters. Six fighter control units, 16 air-base battalions, 13 fighter squadrons and four air transport squadrons are retained. A third batch of JAS 39 Gripen will be procured. The Armed Forces’ peacetime organization

The Government’s proposal for the war organization represents a balanced overall solution. In formulating the proposal on the structure of the peacetime organization, two guiding principles have been the avoidance of uncertain investments and concentration on garrisons that can easily be expanded. The Government is also of the opinion that the various peacetime activities of the Armed Forces should be spread out geographically in order to strengthen public support for the defence system. There is, however, no direct link between where a unit receives its basic training and where mobilization takes place or where the unit is intended to be used in war.

The army’s peacetime organization will include the following 13 army brigades:

• the Norrbotten Brigade (MekB 19) in Boden • the Ångermanland Brigade (NB 21) in Sollefteå • the Rifle Brigade (NB 5) in Östersund • the Dalarna Brigade (NB 13) in Falun • the Värmland Brigade (IB 2) in Kristinehamn • the Life Guards Brigade (IB 1) in Kungsängen • the Södermanland Brigade (MekB 10) in Strängnäs • the Gotland Brigade(MekB 18) in Visby • the Småland Brigade (IB 12) in Eksjö • the Skaraborg Brigade (PB 9) in Skövde

28 • the Halland Brigade(IB 16) in Halmstad • the Skåne Dragoon Brigade (PB 8) in Hässleholm • the Southern Skåne Brigade (MekB 7) in Revingehed.

It is proposed that the navy’s peacetime organization should consist of the following naval establishments:

• the Northern Naval Command (MKN) in Härnösand • the Eastern Naval Command (MKO) in Vaxholm/Muskö • the Fårösund Naval Brigade (FMB) in Fårösund • the Western Naval Command (MKV) in Göteborg • the Southern Naval Command (MKS) in Karlskrona.

The peacetime organization of the air force will principally consist of 13 air squadrons and 16 air-base battalions divided between the following wings:

• F 21 in Luleå • F 4 in Östersund • F 16 in Uppsala • F 7 in Såtenäs • F 10 in Ängelholm • F 17 in Kallinge.

The Government proposes that the following be disbanded:

• the Lower Northern Division in Östersund, the WesternDivision in Skövde, and the Central Division in Linköping • Defence District Headquarters in Ystad, Växjö, Kalmar, Gävle, Bor- ås, Linköping, Västerås, Östersund, Kiruna and Kalix • the Life Grenadier Brigade (IB 4) in Linköping, the Älvsborg Brigade (IB 15) in Borås, and the Lappland Brigade (NB 20) in Umeå • the Svea Artillery Regiment (A 1) in Linköping, the Norrland Artille- ry Regiment (A 4) in Östersund, the Skåne Air Defence Training Regi- ment (Lv 4) in Ystad, the Svea Engineers (Ing 1) in Södertälje, and the Svea Supply and Transport Training Regiment (T 1) in Linköping • Hälsinge Wing (F 15) in Söderhamn, and the Air Force FlyingTraining Wing (F 5) in Ljungbyhed.

29 The Government proposes that the following units be established:

• the Armed Forces Helicopter Wing at Malmen • the Armed Forces International Command in Södertälje, through a reorganization of SWEDINT • the Armed Forces Intelligence and Security Headquarters in Uppsala • the Armed Forces Logistics Unit • the Army Tactical Headquarters in Enköping.

In addition, the Öresund Naval District is to come under the organization of Naval Commands, and Karlskrona Navy Training Schools under Berga Navy Training Schools. Upgrading defence materials

Ground defence forces

• Procurement of Leopard 2 tanks type 121 • Procurement of the new Leopard 2 I tanks type 122 • Procurement of more combat vehicles type 90 • Procurement of anti-aircraft missile system type 90 withnight vision capability • Procurement of artillery-locating radar (ARTHUR) • Procurement of anti-aircraft missile system type 23 (BAMSE), medium-range all-weather system • Procurement of target-detecting submunitions system BONUS for the artillery • Overhaul and modification of anti-aircraft missile system type 77.

Naval defence forces

• Procurement of coastal corvettes • Procurement of submarines equipped with additional engines tomake it possible to travel further when submerged • Procurement of combat vessels for the amphibious battalions • Procurement of mine-sweeping vessels • Construction and procurement of YS 2000 surface attack vessels • Procurement of torpedo type 62.

30 Air defence forces

• Procurement of JAS 39 Gripen • Procurement of FSR 890 airborne surveillance radar system • Procurement of TARAS tactical radio system • Establishment of fighter control units.

JAS 39 Gripen

The Government wishes the first Gripen squadron to be operative by 1997 and the second in the following year. It is also important that procurement of the two-seater JAS 39 Gripen continues. The aim is that delivery of this plane should begin in 1998 and that it should be put into operative service in 1999. The Government proposes that a third batch of JAS 39 Gripen shall be developed and procured. The objective is twelve fighter squadrons, which means that the third batch corresponds to the requirements of a further four divisions. Final deliveries of the second batch will take place in the year 2003, which means that deliveries of the third batch must begin in the same year. This in turn means that development work must begin in 1997, and be geared towards adaptation to new technology and better air defence capability. Final deliveries will be in 2006. The JAS 39 Gripen and the JA 37 will be equipped with missile 99. The Government proposes that the JAS 39 Gripen shall also be equipped with a reconnaissance pod.

International cooperation

In times of war and crisis Sweden should be able to make use of the defence materials we already have and also to produce that which we cannot obtain from other countries. Therefore the Government has de- clared that certain basic competencies must be provided for in the country:

• electronic warfare technology • advanced stealth technology • underwater technology • aviation technology • maintenance of existing systems.

31 The defence material requirements of the Armed Forces will be insuffi- cient to maintain a defence industry of the present size. Increased international cooperation is necessary if we are to maintain the defence industry’s level of competence and enable the defence forces to adapt to change. The Government believes that national self- sufficiency is both undesirable and economically and technically im- possible. Instead we must minimize the risks dependence on other nations entails. Intensified international cooperation will help us to maintain Swe- dish competence at the same time as it gives access to international knowledge and expertise. It also makes competitive tendering possible when defence materials are to be procured.

32 Civilian defence - stable and flexible

Aims and tasks

The duties of the civilian defence are to

• protect the civilian population, ensure essential supplies,safeguard the most important public services and support the Armed Forces’ capability in the event of an armed attackon Sweden or war in our immediate vicinity, • be able to carry out international peace support and humanitarian operations • reinforce the overall ability to deal with severe peacetimeemergen- cies.

The ability of the civilian defence to fulfil its duties in war is based on society’s innate robustness and flexibility. This basic capability is complemented by special preparations to counter armed attack. Of particular importance to the civilian defence’s performance of its duties is that infrastructure systems such as the electricity supply, telecommunications and information technology are not vulnerable. Deregulation and internationalization, and increasing specialization and concentration in industry lead to increased dependence on single sources and other countries. The first phase of the Defence Resolution has meant significant changes for civilian defence planning. The definition of security has broadened and a unified approach is now applied to measures to deal with threats and risks in war and peace. The resources of the civilian defence should be available in times of severe peacetime emergencies and for international peace support and humanitarian operations. In wartime the command of the civilian defence would be organized at four different levels: central government, civilian commander, county administrative board and local council. The Government sees it as important to improve command ability through education and training. Priority should also be given to technical support, measures to improve telecommunications and computer security, energy reserves and, in some cases, physical protection. It is the responsibility of the authorities to give the local councils the support they need for their planning and preparation.

33 Civil emergency forces

The Government is strengthening the civilian defence through its proposal for a new form of training for the civil emergency forces. The aim is to create an easily available resource which can be engaged in times of war or civil emergency. The training shall be in two parts: a general training course lasting a minimum of 60 days, and a specialized course. The length of the training will vary according to its nature, but the total training period is likely to be approximately three months.

Training can be in such areas as

• reception of refugees • protection of the civilian population • rescue services.

34 Personnel

During the period 1997-2001 the slimming down of the peacetime organization will lead to a reduction in Armed Forces personnel of about 4,000. How this reduction should be carried out should be decided through an agreement between the various parties involved. It is necessary to explore all possible ways of carrying out the restructuring of the Armed Forces. The Armed Forces should also plan for longer postings for full-time officers. The Government emphasizes the importance of good education and training for both civil and military personnel. Civil personnel should be allowed to take part in training at the military colleges that is rele- vant to their participation in the military defence’s war and peacetime organizations. In order to make the personnel structure more flexible, other ca- tegories of instructor than regular officers should be involved in the peacetime training of forces.

35 Research

Changes in the international security situation make analysis and research more important than ever.

• There is an increased need for defence research regarding long-term planning of total defence capability. • The Armed Forces shall provide a good level of competence when commissioning research and technology development. • There should be an increase in international analysis and research in areas of importance to the total defence’s ability to adapt and to the new threats we face. • There should be an increase in research and analysis concerning international operations. • The continued monitoring of NBC weapons, biotechnology and gene- tic engineering is necessary.

The Government is setting up a special group, whose chairman will be appointed by the Minister of Defence, to coordinate research into new threats and risks to society. The research furthering the ability to adapt shall be based on intelligence-gathering and analysis, and shall provide a basis for Governme- nt decision-making. The same applies to research and analyses concerning international operations.