Democratizing Communist Militaries Democratizing Communist Militaries The Cases of the Czech and Russian Armed Forces Marybeth Peterson Ulrich Ann Arbor To Mark, Erin, and Benjamin Copyright © by the University of Michigan 1999 All rights reserved Published in the United States of America by The University of Michigan Press Manufactured in the United States of America V∞ Printed on acid-free paper 2002 2001 2000 1999 4 3 2 1 No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, or otherwise, without the written permission of the publisher. A CIP catalog record for this book is available from the British Library. Library of Congress Cataloging-in-Publication Data Ulrich, Marybeth Peterson. Democratizing Communist militaries : the cases of the Czech and Russian armed forces / Marybeth Peterson Ulrich. p. cm. Includes bibliographical references (p. ) and index. ISBN 0-472-10969-3 (acid-free paper) 1. Civil-military relations—Russia (Federation) 2. Civil-military relations—Former Soviet republics. 3. Civil-military relations—Czech Republic. 4. Russia (Federation)—Armed Forces—Political activity. 5. Former Soviet republics—Armed Forces—Political activity. 6. Czech Republic—Armed Forces—Political activity. 7. Military assistance, American—Russia (Federation) 8. Military assistance, American—Former Soviet republics. 9. Military assistance, American—Czech Republic. I. Title. JN6520.C58 U45 1999 3229.5909437109049—dc21 99-6461 CIP Contents List of Tables vii Acknowledgments ix List of Abbreviations xi Introduction 1 Chapter 1. A Theory of Democratic Civil-Military Relations in Postcommunist States 5 Chapter 2. A Survey of Overall U.S. Democratization Programs and Military Democratization Efforts in the Postcommunist States 44 Chapter 3. Postcommunist Military Democratization Needs: An Assessment of Democratic Political Control in Russia and the Czech Republic 70 Chapter 4. An Assessment of Postcommunist Military Professionalism: The Russian and Czech Militaries’ Democratic Deficits 108 Chapter 5. The Effectiveness of U.S. Military to Military Democratization Initiatives in Russia and the Czech Republic 154 Chapter 6. Conclusions and Prescriptions for Improving Democratization Outcomes in the Postcommunist States 182 Appendix A. Military to Military Contacts Conducted in the Czech Republic through the Joint Contact Team Program 189 Appendix B. Military to Military Contacts Conducted in Russia through the Defense and Military Contacts Program 205 Notes 219 Selected Bibliography 259 Index 283 Tables 1. A Comparison of Democratic and Soviet Models of Political Control of Military Institutions 12 2. A Comparison of Democratic and Soviet Models of Military Professionalism 24 3. JCTP Supporting Units’Areas of Focus 57 4. Inverted Pyramid of ACR Officer Personnel 124 5. Proposed Pyramidal ACR Force Structure 125 Appendixes A1. Events That Could Not Be Classified as Supporting Either the Enhancement of Democratic Civilian Control of the ACR or the Professionalization of the ACR as a Military Institution in a Democracy 189 A2. Events That Could Be Categorized as Supporting the Enhancement of Democratic Civilian Control 197 A3. Recruitment and Retention 198 A4. Promotion and Advancement 199 A5. Education and Training 199 A6. Officership and Leadership 200 A7. Prestige and Public Relations 202 A8. Chaplain-Related Events 202 B1. Defense and Military Contacts with Russia That Could Not Be Classified as Specifically Supporting Either the Enhancement of Democratic Civilian Control or the Professionalization of the Russian Military as a Military Institution in a Democracy 205 viii Tables B2. Contacts That Could Be Categorized as Supporting the Enhancement of Democratic Civilian Control 213 B3. Contacts That Could Be Categorized as Supporting an Aspect of Professionalization of the Russian Military as a Military Institution in a Democracy 215 Acknowledgments This work is the culmination of a process of scholarly inquiry begun within the Department of Political Science at the University of Illinois. I would like to thank the faculty members there who inspired and stimulated my interest in the process of democratization in postcommunist states in general, and in the process of military democratization specifically. I owe a particular debt to my doctoral dissertation committe chairman, Professor Edward Kolodziej, for his personal guidance throughout the research and writing. His dedication to his craft in both the classroom and in his research continues to inspire me. The re- gional expertise of Professors Roger Kanet and John Lepingwell was also in- valuable. I am further indebted to Professors Kolodziej and Kanet for their con- tinued interest and assistance as the project advanced throught the publication process. The United States Air Force Institute of National Security Studies (INSS) also played a critical role by generously funding numerous trips to Central and Eastern Europe and to the former Soviet Union to gather invaluable field re- search. Lt. Colonel Jeff Larsen, Lt. Colonel Peter Hays, and Dr. James Smith, directors of INSS, all provided support at key points in my research. I am also grateful to the Department of Political Science at the United States Air Force Academy, led by Colonel Doug Murray and Colonel Bill Berry, which spon- sored my graduate studies at the University of Illinois and facilitated my abil- ity to bring the manuscript to fruition. The professional editorship at the Uni- versity of Michigan Press, beginning with Chuck Myers in acquisitions and culminating with Kevin Rennells’s stewardship through copyediting, has crafted the work into a polished and credible publication. I thank my parents for their patience, pride, and continued interest throughout the publication process. Above all, I credit my husband Mark for holding down the fort on the home front and caring for first one and then two small children when I traveled in support of the project. Without his logistical and continuous personal support, completion of the book would not have been possible. Erin and Benjamin also deserve credit for their sacrifices in support of Mommy’s work schedule. Finally, I thank the Department of National Security and Strategy at the U.S. Army War College, led by Colonel Joe Cerami, whose interest in this topic x Acknowledgments has resulted in a position where the study and teaching of civil-military rela- tions will become a key component in the education of senior professional of- ficers from all over the world. Abbreviations ABM Antiballistic Missile ACR Army of the Czech Republic AOR Area of Responsibility AP Associated Press BALTOPS Baltic Operations CBM Confidence Building Measure CEE Central and Eastern Europe CFE Conventional Forces in Europe CGSC Command and General Staff College CIA Central Intelligence Agency CINC Commander in Chief CINCPAC Commander in Chief, Pacific CIS Commonwealth of Independent States CJCS Chairman, Joint Chiefs of Staff CPSU Communist Party of the Soviet Union CSA Czechoslovak Army CSCE Conference on Security and Cooperation in Europe CSPA Czechoslovak People’s Army CTR Cooperative Threat Reduction CZ Czech Republic DAO Defense Attaché Office DCS Direct Commercial Sales DIA Defense Intelligence Agency DISAM Defense Institute of Security Assistance Management DLI Defense Language Institute DOD Department of Defense DSAA Defense Security Assistance Agency EIMET Expanded International Military Education and Training EEU European Economic Union EU European Union EUCOM European Command FAM Familiarization Tour FAO Foreign Area Officer FBIS Foreign Broadcast Information Service FMS Foreign Military Sales FSU Former Soviet Union xii Abbreviations FY Fiscal Year G-7 Group of Seven GAO Government Accounting Office GATT General Agreement on Tariffs and Trade HQ Headquarters ID Infantry Division IMET International Military Education and Training IMF International Monetary Fund INSS Institute of National Strategic Studies IWG Interagency Working Group J-5 Strategic Plans and Policy Directorate JCS Joint Chiefs of Staff JCTP Joint Contact Team Program JPRS Joint Publication Research Service KSC Communist Party of Czechoslovakia MAG Military Assistance Group MFA Ministry of Foreign Affairs MFN Most Favored Nation MLT Military Liaison Team MOD Ministry of Defense MP Member of Parliament MPA Main Political Administration MWR Morale Welfare and Recreation NA Not Applicable NACC North Atlantic Cooperation Council NAFTA North American Free Trade Agreement NATO North Atlantic Treaty Organization NCO Noncommissioned Officer NDU National Defense University NED National Endowment for Democracy NGB National Guard Bureau NGO Nongovernmental Organization NIS New Independent States NSC National Security Council O-6 Colonel OAS Organization of American States OPIC Overseas Private Investment Corporation OSD Office of the Secretary of Defense OSIA On-Site Inspection Agency PACOM Pacific Command PCS Permanent Change of Station PKO Peacekeeping Operations PME Professional Military Education POC Point of Contact POW Prisoner of War PPBS Planning, Programming, and Budgeting System Abbreviations xiii RAF Royal Air Force SALT Strategic Arms Limitation Talks SecDef Secretary of Defense SEED Support for East European Democracy SPACECOM Space Command SRF Strategic Rocket Forces STRATCOM Strategic Command TCT Traveling Contact Team TDY Temporary Duty TRANSCOM Transportation Command UCMJ Uniform Code of Military Justice UMA Military Affairs UN United Nations UNPROFOR