Defense Reform and Conversion in Albania, Macedonia and Croatia

78 Pages·2006·0.63 MB·English

BONN INTERNATIONAL CENTER FOR CONVERSION INTERNATIONALES KONVERSIONSZENTRUM BONN
brief 34
Defense Reform
and Conversion
in Albania,
Macedonia and
Croatia
brief 34
Contents
List of Acronyms and Abbreviations 4
Executive Summary 6
About the author
Acknowledgements 7
Tobias Pietz
Introduction 8
Researcher, Bonn International Center
Albania 10 for Conversion (BICC), Germany
Defense Reform 10
Defense Conversion 15
Conclusions 20
Macedonia 23
Defense Reform 23
Defense Conversion 29
Conclusions 34
Croatia 36
Defense Reform 36
Defense Conversion 39
Conclusions 46
Overall Conclusions 47

List of Interviewed Persons 50
Annex 52
Endnotes 68
Responsible at DCAF:
Marc Remillard, Program Manager
for Demobilization and Retraining

Editing:
Elvan Isikozlu
Cover:
NATO photos.
Macedonian soldiers patrolling along
the border with Kosovo.
2 B I C C
BONN INTERNATIONAL CENTER FOR CONVERSION INTERNATIONALES KONVERSIONSZENTRUM BONN
brief
34
Defense Reform
and Conversion
in Albania,
Macedonia and
Croatia
Tobias Pietz
with Marc Remillard
B I C C 3
brief 34
List of Acronyms and Abbreviations
AAA Albanian Atlantic Association
AAF Albanian Armed Forces
ANP Annual National Program
ARM Armed Forced of Macedonia
BA&H Booz, Allen and Hamilton
CAF Croatian Armed Forces
CARDS Community Assistance for Reconstruction, Development and Stabilization
COSS Council for Oversight of the Security Services
DP Democratic Party of Albania
DPA Democratic Party of the Albanians
DUI Democratic Union for Integration
EAPC Euro-Atlantic Partnership Council
EPD Economy and Privatization Directorate
ESDP European Security and Defense Policy
EU European Union
ICTY International Crime Tribunal for the Former Yugoslavia
IOM International Organization for Migration
JNA Army of the Federal Republic of Yugoslavia
JNSC Joint National Security Committee
LEPEZA (spectra) Macedonian Resettlement Project
LTDP Long Term Development Plan
MAP Membership Action Plan
MAPE Multinational Advisory Police Force
MOPO Ministry of Public Order
MPRI Military Professional Resources Inc.
NACC North Atlantic Cooperation Council
NAMRA National Association of the Military in Reserve
NCO Non-Commissioned Offi cer
NDC National Demilitarization Center
NLA National Liberation Army
PARP Planning and Review Process
PCC Prague Capabilities Commitment
PDP Party for Democratic Prosperity
PG Partnership Goals
PMC Private Military Company
RASDP Reintegration Assistance for Separated Defense Personnel
SAA Stabilization and Association Agreements
SAIC Science Applications International Corporation
SAP Stabilization and Association Process
4 B I C C
acronyms
SDR Strategic Defense Review
SDSM Social Democratic Union of Macedonia
SP Socialist Party of Albania
SP Stability Pact for South- Eastern Europe
SPECTRA Separated Personnel Care and Transition Program
TDF Territorial Defense Forces
TRADOC Training and Doctrine Command
UNEP United Nations Environment Program
WEU Western European Union
The Geneva Centre for the Democratic Control of Armed Forces (DCAF) was established in October 2000 on
the initiative of the Swiss government. The Centre encourages and supports states and non-state governed institutions
in their efforts to strengthen democratic and civilian control of armed and security forces, and promotes international
cooperation in this fi eld, initially targeting the Euro-Atlantic regions. To implement these objectives, the Centre:
collects information, undertakes research and engages in networking activities in order to identify problems, to estab-
lish lessons learned and to propose the best practices in the fi eld of democratic control of armed forces and civil-mili-
tary relations;
provides its expertise and support to all interested parties, in particular governments, parliaments, military authorities,
international organizations, non-governmental organizations, academic circles.
Geneva Centre for the Democratic Control of Armed Forces (DCAF)
Rue de Chantepoulet 11
P. O. Box 1360
CH-1211 Geneva 1, Switzerland
Tel: [phone]
Fax: [phone]
E-mail: [email protected]
URL: http://www.dcaf.ch
B I C C 5
brief 34
Executive Summary
Albania, Macedonia and Croatia subordinate. The relations between Regarding the concrete programs
are entering a phase of defense the main security players, such as the which are currently implemented
restructuring that most Eastern Parliament, the President, the Prime for the reintegration of redundant
European countries have already Minister, and the Defense Minister personnel, only Croatia’s SPECTRA
surpassed. A suffi cient degree of demonstrate contradictions between program can be judged as successful
stability has been established in the defense laws and everyday practice. by the author, while all the other
Western Balkans following the wars Very few NGOs are involved in programs are either defi cient or have
and domestic unrest of the 1990s, in security and defense matters, as they just entered the implementation
which reform processes and potential mostly repeat the stereotypical goal of phase with very modest outcomes.
disarmament was brought to a halt. NATO integration without providing The lack of available funding and
This brief deals with the military reform civilian expert input. Additionally, qualifi ed expertise for the preparation
and the defense conversion process in the legacy of the communist past and implementation of reintegration
the aforementioned countries. Among continues to perpetuate a culture of programs delayed the start of the
the issues covered are the adoption and secrecy and infl uences civil-military LEPEZA program in Macedonia.
implementation of strategic-doctrinal relations in Albania, Macedonia and At the same time, the inability of the
documents, and the modernization Croatia. MoD in Albania to offer a realistic
and downsizing of armed forces, reintegration program has forced it to
including the reintegration measures The fi ndings of this brief further focus on improving pension benefi ts
for redundant personnel and the show that the defense reform for ex-military men, despite the fact
arrangements for sale and conversion process in the Western Balkans is that funding capabilities to implement
of military bases. complex. This is because it involves the pension law for ex-offi cers is rather
not only the improvement of civilian minimal.
The current goal of defense reforms and democratic oversight and the
in Albania, Macedonia and Croatia modernization of the armed forces The conversion of military sites
consists mainly of establishing small, and the Ministries of Defense, but also remains vague in all three countries.
modern, effective, deployable and the adaptation of the armed forces State offi cials often equate the term
interoperable professional armies. to the new global, regional and local with the transfer or sale of military
With the adoption of strategic strategic environment. Yet public property and equipment, or a
documents, legal frameworks, and with opinion in Albania, Macedonia and modernization or income generation,
the downsizing of personnel already Croatia associates defense reforms but not necessarily with benefi ts to
in an advanced stage, the essential more with the closure of military sites, individuals, local communities or
yardsticks of defense have been met. loss of employment and a decline in regions. At times, the modernization
This brief concludes that the reforms living standards for former military of military bases for new operational
have been guided primarily by external personnel. Despite achievements in the tasks is also referred to as conversion.
actors, namely by NATO, foreign defense reform process, the Western As a rule, the national MoDs are
Private Military Companies (PMC) and Balkan countries have achieved the institutions that are responsible
bilateral support by the US and various differing degrees of success regarding for implementing and controlling
EU countries. NATO’s infl uence has the restructuring of their armed the conversion of military property.
played a particularly formative role, as forces, the reintegration of redundant Consequently, sale or renting is used as
reforms are one of its priority issues, military personnel, and the conversion the main “conversion model” with the
carried out through various programs of military sites for civilian purposes. main purpose being to generate funds.
and activities. All three countries The reintegration of ex-military men Such a money-making approach may in
consider these reforms as a test of into civilian life remains a secondary part explain the lack of transparency in
their capability and willingness to problem, as it is not an integral part the process, and why the MoDs cannot
adopt and implement the rules and of defense reform. The issue does be seen as impartial brokers.
standards of NATO as well as a step not seem to be a priority for NATO
towards potential EU membership in or PMC either, leaving it up to weak To improve the overall performance of
the future. national institutions that act under the conversion activities of the three
huge fi nancial constraints and with countries, this study recommends to:
Theoretically, defense reform should limited integration possibilities of
help adjust national institutions to national economies and labor markets. Increase transparency in all
NATO standards in civil-military An exception to this is the strong, planned and currently undertaken
relations as well. This brief argues fi nancial and structural involvement conversion activities, but
that the role of national institutions of the International Organization especially within the process of
in guiding the reforms remains rather for Migration (IOM) in the Croatian the transfer and sale of military
reintegration process. bases, sites and assets. The model
6 B I C C
summary
of an independent agency for Acknowledgements
conversion would guarantee
more transparency and streamline The author would like to thank his
bureaucratic procedures. colleagues at BICC for their support,
particularly Andreas Heinemann-Grü-
Avoid duplication of structures der for his continuous and substantial
and efforts but use synergies such input into the study; Elvan Isikozlu for
as the integration of IOM into the her language editing and proof-reading;
set-up of the SPECTRA program, Michael Brzoska for providing helpful
which could be used for other comments; and Svenja Bends and Kaska
activities in defense conversion Moraht for the layout and publishing of
as well. Moreover, NGOs this study.
should be involved in making
the process more cost-effi cient, At our partner organization for this study
and, in the case of retraining – the Geneva Center for the Democratic
and resettlement, to have civilian Control of the Armed Forces (DCAF)
partners on board for reintegrating – the author would like to thank Marc
ex-military into society and the Remillard for his comments and coope-
economy. ration. Moreover, Fréderique Jaquemin
from NATO's Economic Directorate
Drop high expectations for profi ts was very supportive and arranged mee-
from transfers and sales. They tings with NATO personnel involved in
are not likely to materialize. The military reform in the Western Balkans.
environmental issues in particular Appreciation goes to the NATO Expert
could backfi re on the planned Team on Defense Conversion for pro-
sales. An option to attract new viding a cooperative atmosphere on our
funds in times of low donor mission to Croatia in spring 2005.
interest for military reform is to
request fi nancial support for the Numerous people were supportive in
clean up of polluted military sites. the three countries of this study, as well
Though this presents no fi nancial as important sources of information.
gain in the defense budget, it In Croatia, main thanks go to Zvonko
presents a positive benefi t to Popovic and his SPECTRA team in
communities. particular for always being available
and eager to help, as well as Gregoire
Increase and institutionalize the Goodstein and his team from the IOM
RASDP Project. In Albania, Arben Gjata
exchange of experiences in the
was indispensable for the verifi cation
region on defense reform and
of the data and for providing detailed
concrete conversion projects.
explanations of the defense and security
Structures like the new Defense
issues in his country. In Macedonia, Dane
Conversion Cell at RACVIAC can
Taleski was an invaluable resource on
provide important support for this
political and military matters.
purpose.
Nevertheless, it goes without saying
Provide the message that no social
that only the author is responsible for
benefi ts automatically result from
the views expressed in this study.
a military career, but rather that
each soldier has a civilian identity
and personal responsibility to
society.
B I C C 7
brief 34
Introduction
Defense reform, the restructuring consists in establishing small, modern, process of military reform. This
of armed forces, NATO effective, deployable and interoperable feedback could then be used to
integration and defense conversion are professional armies as opposed to formulate lessons learned to better the
common issues for the Western Balkan conscript-based forces. national processes of each country
countries. International organizations, analyzed in this study.
such as the Stability Pact for South More specifi cally, this study analyzes
Eastern Europe (SP) and NATO, think the developments, achievements, and In discussing various elements of
tanks, NGOs, and private companies shortcomings of defense reform and the defense reform four aspects are
are trying to respond to a growing defense conversion in Albania, Croatia presented: fi rst, the strategic planning,
demand by national governments and Macedonia. The study attempts e.g., those documents necessary to
for fi nancial help and expertise to single out the main factors that develop a conceptual orientation of
to cope with the implications and infl uence military reform and defense the whole defense reform; second,
consequences of military reforms and conversion. It is based on information the implementation process; third, the
defense conversion.1 Similar to other gathered during fi eld trips to all three characteristics of armed forces to be
areas of post-socialist transition and countries in March and April of 2005, achieved by the reform; and fourth,
transformation, the Western Balkan and to NATO in December 2005. basic principles for executing the
states are entering a phase which most Albania, Croatia, and Macedonia were process. This will include the security
Eastern European countries have selected to complete a series of studies and defense strategy, the fi nancial
already passed with varying degrees issued jointly by the Geneva Center aspects of the process as well as the
of success. A suffi cient degree of for the Democratic Control of the strategic defense review.
stability has been established in this Armed Forces (DCAF) and the Bonn
region following the wars and domestic International Center for Conversion Defense conversion is seen by national
unrest of the 1990s, in which reform (BICC) covering almost all Western and international actors as an integral
processes and potential disarmament Balkan countries.3 part of a comprehensive Defense and
was brought to a halt. Euro-Atlantic Security Sector Reform process in
integration is becoming a likely The text of the following study the Western Balkans.4 Conversion has
prospect for a growing number of has three country chapters and been described as the transformation
states in the region while old threat an overarching conclusion with and re-use of various kinds of
perceptions are slowly changing. recommendations. Each country military assets for civilian purposes.5
Judging by the recent strategic defense chapter begins with a general Therefore, activities like retraining and
and security papers published in description of the state of the military resettlement of redundant military
the region, military reforms and the reform, the status of Euro-Atlantic personnel, and redevelopment, clean-
resulting conversion needs are gaining integration, and the degree of progress up of environmental contamination,
importance in all Western Balkan in establishing functioning civil-military and rehabilitation of military bases all
countries. relations. The main subchapters are the fall within the realm of conversion.
analysis of policies, plans and activities However, with regard to the defense
This study deals with military reform in the fi eld of military reforms and conversion in the Western Balkan
and the defense conversion process the two most relevant fi elds of states—namely in Croatia, Albania and
in general. Among the issues covered defense conversion: the retraining and Macedonia—national and international
are the adoption and implementation resettlement of discharged military actors involved are using differing
of strategic-doctrinal documents, and personnel and military base conversion. defi nitions of and approaches to this
the modernization and downsizing concept of conversion, often following
of armed forces.2 Part of the The criteria chosen to measure the slightly diverging agendas. The concept
implementation of these goals is the achievements and shortcomings try to of defense conversion itself remains
build-up of an appropriate defense answer the following key questions: vague, but it is mostly understood as
planning system, an adequate and how realistic is the process of reform referring to downsizing, resettlement
affordable resource allocation, a proper planning (realism)? How effi cient and reintegration of military personnel,
and effi cient budgetary system, a clear, is the institutional framework of the conversion of military bases and
transparent and effi cient procurement reform (effi ciency)? How suffi cient property as well as the conversion
process, human management systems, are the fi nancial and human resources of defense industries. State offi cials
appropriate social programs to deal (suffi ciency of resources)? What is the often equate the term with the transfer
with the adverse effects of the reform, role of external support for reforms or sale of military property and
public communication strategies, and (external support)? By applying equipment; with modernization or
an effi cient decision-making system. these indicators the author aims to income generation; but not necessarily
The ultimate goal of these reforms provide feedback on achievements with the benefi ts to individuals, local
and shortcomings of military reforms communities and regions. Sometimes
and defense conversion and to make the modernization of military bases for
recommendations on managing the
8 B I C C
introduction
new operational tasks is also referred the defense reform in the Western secure governmental and parliamentary
to as conversion. The Ministries of Balkans presents a huge challenge for support for suffi cient resources. Given
Defense of the three countries under all countries concerned and is a test the importance of a coordinated inter-
study show similar expectations of their capability and willingness to agency approach, the reform process
and visions of defense conversion adopt and implement the rules and should also be designed as a national
as those of other Balkan countries standards of NATO. However, it is project.
such as Serbia and Montenegro.6 For understandable that the armed forces
these countries, defense conversion is of the Western Balkan countries The defense reform process in the
expected to provide funding for the are psychologically and linguistically Western Balkans is complex. It
modernization of military bases or unprepared to immediately start co- involves the improvement of civilian
overall military reform. operating with NATO. and democratic oversight, the
modernization of the armed forces
However, experience shows that it is Although reform needs are perceived and the Ministries of Defense, the
unrealistic to see defense conversion differently in the individual countries, adaptation of the armed forces to
as a means of generating major funds “NATO members usually refer to three the new global, regional and local
for defense reform.7 Savings through ‘baskets’ of ideas of defense reform”:11 strategic environment—rendering
downsizing are only moderate and the the armed forces capable to deal with
direct income from the sale of assets 1) Defense restructuring and reform of the new kinds of security threats
is markedly reduced by the costs of defense management practices and and confl icts—and the capability for
environmental clean-up. As such, institutions; international interoperability to help
the profi ts of conversion for society solve crises and cope with terrorist
are often not directly measurable in 2) Development of defense capabili- threats.13 This presents a huge burden
fi nancial terms, but are rather of a ties required to meet both new and not only for the defense sector alone,
general nature: a cleaner environment, traditional defense-related challen- but also for the environment and
additional and improved infrastructure ges; and society as a whole.
for local communities, and more
housing, etc. Similar to the way the 3) Action that will increase the coun-
Peace Dividend did not materialize as tries’ ability to contribute to NATO-
had been hoped, the profi ts of defense led crisis response operations.
conversion in the Western Balkan Those involved in NATO’s PfP
countries are unlikely to meet the program and respective activities
optimistic expectations currently held with the partner countries in the
in the regional Ministries of Defense.8 Western Balkans have interoperabili-
ty with NATO forces as their prime
The defense reforms in the Western objective. Defense conversion is
Balkans have been primarily driven by therefore a function of the overall
the involvement of NATO. NATO’s goal of modernizing defense and
outreach has played an indispensable military related strategies, structures
role in the region and reforms are one and equipment.12 Interoperability in
of its priority issues, carried out in possible future joint operations is
particular through various programs the prime objective for NATO, and
such as the Euro-Atlantic Partnership this is likely to remain so in the near
Council (EAPC), the Partnership future.
for Peace (PfP), the Membership
Action Plans (MAP), and the Planning Whatever the underlying conception
and Review Process (PARP). These of “conversion”, the reform process
programs are considered as “a vehicle should be guided by basic principles.
to promote essentially the same vision Any reform must be accompanied by
of defense reform, depending on each strong political support, and should be
Partner’s needs”.9 NATO through carefully planned and adaptable during
its PfP and MAP is among the main the course of implementation. Defense
promoters of defense reform in the reform requires a clear understanding
Euro-Atlantic area.10 In particular, of the security environment, the
capability to anticipate and translate
threats and challenges into adequate
force plans as a part of an overall
strategic assessment, and the ability to
B I C C 9
brief 34
Albania
14
Defense Reform support for closer cooperation with their military service but had chosen
NATO. Consequently, the Albanian to remain in the AAF were to make
Albania has not experienced an government holds the opinion that up the future professional army. Plans
overt interstate confl ict or frontier the Albanian Armed Forces (AAF) foresaw a force strength of 14,500
change during the past decade, but have to be downsized, professionalized active duty personnel in peacetime,
rather a spell of internal disorder in and modernized in order to be with an additional 2,000 civilians. They
1997, which required a brief NATO compatible with other armies in also authorized 20,000 soldiers in
military intervention (“Operation NATO. Therefore, almost all changes reserve formations.24
Alba”). This was sparked by the within the AAF are the result of the
collapse of the pyramid investment goal of NATO membership, including However, in mid-2003, due to a
schemes that were initiated in the early the revised draft of the Military reassessment of security threats and
1990s, and many people lost their Strategy (2004) labeled as “Strategy affordable resources, the Albanian
life savings as a result. This situation of NATO-integration”. This fact has Assembly authorized a further
gave rise to widespread public unrest generated some criticism in Albania downsizing from 31,000 to 16,500
in March 1997, during which 1,300 that the real mission of the AAF is to until 2010. In fact, the revised Strategy
army stores were looted by the general meet the NATO military standards of 2004 no longer mentions the
population. During this turmoil, it as soon as possible.18 However, the strength of the reserve, but rather
is reported that over 550,000 SALW Military Strategy sees the main mission states: “the AAF’s active component
and about 900 million rounds of of the AAF as providing combat will be supported by an appropriate
ammunition were taken from military readiness for defense; monitoring and and reasonable Reserve Force.”25 This
depots. The government lost control surveillance of Albania’s sea, air, and decision was based not only on fi scal
over most of the country and the land territorial space; participating in realities and a mission analysis, but
environment became highly insecure. humanitarian assistance and disaster also on the desire to meet NATO
relief operations; fi ghting terrorism; criteria for membership. A former
During the civil unrest the army and participating in peace support high-ranking defense offi cial claimed
was also disintegrated. However, operations.19 that the current personnel strength of
the process of defense restructuring the AAF was something controversial,
was not so much infl uenced by The AAF has been undergoing estimating them to be at around 12,000
events in the security environment transformation since 1992. Albania’s – 13,000 as of March 2005.26 NATO
as by “…frequent changes of armed force structure until the year offi cials revealed the intriguing fact
defense policy, a lack of any realistic 2000 comprised 5 divisions/32 that the AAF has reached the number
resource management system, and a brigades with no engineers, logistic of 16,500 by this year, almost 5 years
tendency to develop plans for force or civil protection structures. The ahead of the original plan.27
structures that try to save the jobs main aim of AAF restructuring,
of the existing offi cer corps.”15 Basic which is planned to be completed According to the Military Strategy,
strategic documents, like the National by 2010, is to achieve a smaller but the AAF is restructured into 5
Security Strategy and the Defense more capable force with appropriate Commands: Land Forces, Air Forces,
Policy, were adopted in Albania fi nancial resources.20 In 2000, the Navy Forces, Training and Doctrine,
only in February 2000, the Military Albanian government put forward a and Logistic Support Command.
Strategy in August 2002, while the plan with two stages: to fi rst transform According to the revised Military
White Book is still pending to be the AAF into smaller, more effi cient Strategy, the Land Forces are based
passed through parliament.16 These forces during 2000-2004, and then to mainly in Zall Herr, Vau i Dejes,
documents describe plans for the modernize them during 2005-2009. Poshnje and Yzberisht. They consist
implementation of the reform process The AAF had to be downsized from of a Rapid Reaction Brigade, the
up to 2010 in a more realistic manner, 43,000 to 31,000 troops.21 In 2002, Engineer Brigade, a Commando
compared to previous plans. The Albania launched a 10-year defense Regiment, and a Communication
Military Strategy set three main goals reform strategy sponsored by the US Battalion. Five Reserve Infantry
for the defense reform, namely “…to Department of Defense in order to Brigades are subordinated to Land
develop a professional army, reducing trim down and thoroughly modernize Forces Command. The Air Forces are
the number of conscripts and increase the AAF.22 The Military Strategy of based mainly in Tirana (Rinas) and
defense budget per 0.1 per cent of 2002 mandated the AAF’s strength Farka, as well in two reserve bases
GDP annually till 2010.”17 to be at 18,00023, 70% of which have (Kuçove, Gjader). They consist of one
to be professional soldiers, and 30% multi-purpose helicopter Regiment,
Since NATO’s “Operation Alba”, conscripts. Conscripts that ended fi xed-wing surveillance aircraft,
there has been international support an air defense brigade and troop
for security improvements, and there School. Navy Forces consist of two
is widespread public and political Naval Districts (Durres and Vlora), a
10 B I C C