SECURITY-SECTOR REFORM AND TRANSPARENCY-BUILDING Needs and Options for Ukraine and Moldova 2004 HARMONIE PAPER 17 Security-Sector Reform and Transparency-Building Needs and Options for Ukraine and Moldova The contributors to this work are David Greenwood, Peter Volten, and others. Copyright © 2004 by CESS All rights reserved. No part of this publication may be reproduced or transmitted in any form or by any means, electronic or mechanical, including photocopy, recording or any information storage and retrieval system, without permission in writing from the publisher. First published in March 2004 by The Centre of European Security Studies (CESS) Lutkenieuwstraat 31 A 9712 AW Groningen The Netherlands Director: Peter Volten ISBN 90-76301-19-0 The Centre for European Security Studies is an independent and non-profit foundation engaged in research, education and training on foreign policy and security affairs affecting the whole of Europe. A key mission is to promote democratic structures and decision-making procedures in this field, especially throughout Central and Eastern Europe where it works to support those organisations and individuals striving to establish civil societies under the rule of law. By facilitating a comprehensive process of learning, it aims to contribute to mutual understanding on all security matters, thus helping to build a stable all-European order. PREFACE In 2004-5 the Centre for European Security Studies (CESS) is holding a series of policy workshops as part of a programme with the self-explanatory title Needs and Options for Security-Sector Transparency and Reform in Ukraine and Moldova (NOSTRUM, for short). This is an exercise funded by the Ministry of Foreign Affairs of The Netherlands. It is being conducted in collaboration with the Ukrainian Centre for Economic and Political Studies named after Olexander Razumkov (UCEPS, or the Razumkov Centre) and Moldova’s Institute for Public Policy (IPP). The workshops represent the second phase of the NOSTRUM venture. The first phase occupied the period July-November 2003 and involved initial planning, preparatory meetings and some exploratory research on ‘needs and options’. The preparatory meetings were held in Chisinau and Kiev. The exploratory research was conducted for, and reviewed at, a Roundtable convened in Odessa (at the end of November). This Harmonie Paper comprises the material specially commissioned for the Odessa gathering (Parts B and C) plus chapters on policy priorities derived from that material (Part D). (Part A is a brief Introduction which incorporates a summary of the contributed papers.) The ‘priorities’ chapters have been written by CESS’s Director and Research Director, Peter Volten and David Greenwood – who acted as Moderators at the November Roundtable – and they represent possible points of departure for the policy workshops of NOSTRUM’s second phase. The heart of this text, though, is the preceding contributed work. This consists of original essays offering different perspectives on security-sector transparency- building and reform relevant to the circumstances of Ukraine and Moldova. To be specific, analyses for Odessa were solicited from • knowledgeable individuals in three ‘neighbourhood’ states – Bulgaria, Romania and Slovakia – that have not only recent reform experience to share but also a record of accomplishment in this regard sufficient to earn them accession to NATO (papers in Part B here); and • acknowledged experts from the two ‘target’ countries themselves plus respected international commentators on Moldovan and Ukrainian security- sector affairs (papers in Part C). There is a wealth of information and insight in these pieces. Each is valuable in its own right and not just as an input to NOSTRUM agenda-setting. Hence this publication. iii To all contributing authors the Centre for European Security Studies owes a substantial debt of gratitude for their effort on our behalf. Thanks are due also to colleagues Jos Boonstra and Merijn Hartog, who are co-managing the NOSTRUM exercise as a whole; and to Joke Venema, who prepared this text for the printer. Margriet Drent Executive Director, CESS Groningen 29 February 2004 The contributed material in Parts B and C is prepared here as submitted, apart from some layout – and language – editing. This explains the variations to be found in use of hyphens, italics, capital letters and inverted commas. This Preface and Chapters I and XV have been translated into local languages for our Moldovan readers. This Preface and Chapters I and XVI have been translated into Ukrainian. iv TABLE OF CONTENTS Preface................................................................................................................................ iii Part A Introduction I Needs and options for Ukraine and Moldova .............................................................3 David Greenwood Part B Perspectives: Neighbourhood Experience II Bulgaria: lessons of security sector reform...............................................................23 Valeri Ratchev III Bulgaria: integrated defence resource management .................................................39 Todor Tagarev IV Romania: reforming the security sector....................................................................49 Adrian Pop V Romania: reform and parliamentary relations ..........................................................59 Tudor Munteanu VI Slovakia: getting real about security.........................................................................71 Ivo Samson VII Slovakia: sizing and shaping the future force...........................................................81 Gabriel Kopecky Part C Perspectives: National and International VIII Moldova: reform requirements .................................................................................93 Nicolae Chirtoaca IX Moldova: implications of NATO/EU enlargement.................................................103 Vlad Lupan X Moldova and Transnistria .......................................................................................111 Dov Lynch v XI Moldova and Ukraine .............................................................................................123 Alexander Rahr XII Ukraine’s reform accomplishments and challenges ...............................................131 James Sherr XIII Ukraine: reform issues and democratic control ......................................................139 Grigoriy Perepelitsya XIV Ukraine: the armed forces and beyond ...................................................................145 Oleksiy Melnyk and Leonid Polyakov Part D Priorities XV Agenda for Moldova...............................................................................................159 David Greenwood and Peter Volten XVI Agenda for Ukraine.................................................................................................163 Peter Volten and David Greenwood vi Harmonie Papers No.17 Part A Introduction 1 Security-Sector Reform and Transparency-Building 2 Harmonie Papers No.17 I. NEEDS AND OPTIONS FOR UKRAINE AND MOLDOVA David Greenwood At the beginning of 2004 three small states of the former Soviet Union stand at the threshold of NATO accession and membership of the European Union (EU). By the middle of the year the Baltic nations – Estonia, Latvia and Lithuania – will have fulfilled their European vocation (as will Poland, a NATO member since 1999, and Slovakia). A pair of other erstwhile Eastern bloc countries – Bulgaria and Romania – will also join NATO in mid-2004 and have high hopes of admission to the EU later in the decade. Where does this leave the three westernmost states of the post-Soviet Commonwealth of Independent States, and in particular the odd couple – Ukraine and Moldova – that have also in their different ways declared a clear European ‘vocation’ (which the other member of the trio, Belarus, has not)? The short, and candid, answer is that nobody knows. However, much thought is being given to this matter, especially where security is concerned.1 Moreover, one thing we do know is that neither the mighty Ukraine nor little Moldova is likely to be able to develop satisfactory Western connections while their military forces and other ‘armed structures of the state’ remain largely unreformed and while their conduct of security affairs continues to be characterised by a conspicuous lack of transparency. On top of that, of course, such shortcomings are obviously obstacles to the two countries’ overall progress, quite apart from national aspirations to join the European mainstream. What in this respect do Ukraine and Moldova need to do? And what concrete policy options for security-sector reform and transparency-building commend themselves? These are the questions addressed in the present study, with a view to formulating a practical policy agenda for each country. Perspectives To help answer the questions we sought views on ‘needs’ and ‘options’ from three sources: first, national experts of high standing, able to bring to their analyses detailed knowledge and understanding of local conditions and circumstances; secondly, a select number of well-informed and well-regarded ‘outside’ observers of Ukrainian and Moldovan security affairs; and, thirdly, analysts from three neighbouring or 1 See, for example, Judy Batt and others, Partners and neighbours: a CFSP for a wider Europe, Chaillot Papers No. 64, (Paris: EU Institute for Security Studies, September 2003), especially Chapter 2 – by Dov Lynch, one of the contributors