POLICY FRAMEWORK OF THE STRATEGIC DEFENCE REVIEW the time is inside us, and we are inside the time, it shapes us and we shape it. Vassil Levski 1. The security environment affecting the Republic of Bulgaria has gone through radical changes over the past years. The static confrontation of ideologically defined geopolitical blocks, that was characteristic for the second half of the 20 th century and envisaged a large-scale interstate military conflict, has been transformed into asymmetric and difficult to predict potential sources of threat to international order and security, with a lack of clearly defined and predictable enemies that use non-conventional strategies and tactics. 2. There have been significant changes in the Republic of Bulgaria s social, political and economic development. Since 1989, from a totalitarian state, the Republic of Bulgaria has been constituted as a democratic society of sustainable development, consistent policy and respect for universal human values. 3. Acknowledging the integral nature of security in the modern world, the Republic of Bulgaria assumes the challenge to share the responsibility for protection of human life and rights, of the rule of law, of international peace and security and of free economic relations. 4. The Republic of Bulgaria has adopted as its clear and firm policy the understanding that the collective security system is the optimal way to guarantee its national security. The Republic of Bulgaria s accession to the North Atlantic Treaty Organisation and the European Union will contribute to the guarantee of national security and to the further consolidation of Europe whole, free and peaceful. The membership in these organisations provides new opportunities but also sets new requirements to the country s security and defence. 5. The need for upgraded defence capabilities in the context of the new security environment has necessitated the conduct of a Strategic Defence Review. Building on the achievements made so far, the Strategic Defence Review will re-evaluate the existing and define new relations, parameters and rules within the national security and defence system, formulate the vision for development and re-assess the role, missions, tasks and capabilities of the Armed Forces and the other defence components. The Strategic Review will help bring national defence policy in line with that of NATO member states and
will also help define and fulfill the Republic of Bulgaria s commitment to the European Security and Defence Policy. 6. This Policy Framework sets the policy parameters of the Strategic Defence Review. It outlines the goals and requirements of the next stages of the Review. Building on the national security and defence interests and goals, the Policy Framework determines the principle guidelines for development of defence till 2015. І. National Interests and the Security Environment 7. The national interests define the Republic of Bulgaria s strategic goals and priorities and determine its security and defence policy. The Republic of Bulgaria s national interests comprise: sovereignty, independence and territorial integrity; the rule of law, rights and freedoms; economic and social stability and prosperity; international security, stability and peace;the principles and rules of international law. 8. During the years to come the Republic of Bulgaria will defend its interests in a complex global and regional environment of dynamically changing opportunities and challenges that are hard to predict. This requires the application of non-traditional, preventive and pre-emptive approaches and solutions as well as complementary and coordinated efforts to employ political, economic, technological, information, military and civil resources. 9. The beginning of the 21 st century is characterised by dynamic transformations of the UN, NATO, the EU and other international organisations and institutions. Certain states in the world preserve their established leading role while new regional centres emerge as well. The existing coalitions and alliances have been restructured and new ones have been built. Non-state factors become increasingly important for the security environment. There are geopolitical tendencies taking shape to which the existing security and defence systems are inadequate. 10. The probability of a global, or close to global in terms of scale, military conflict in the beginning of the 21 st century is remote but regional sources of tension will remain. Currently, regional instability and conflicts in the Middle East, the Caucasus region, Central Asia and North Africa have the potential to escalate and convert to an active phase and may affect the Republic of Bulgaria s security environment. Certain regions in the Western Balkans
continue to be relatively unstable with a potential for increase of tension that may generate risks to national security. 11. The analysis of the security environment indicates that in the next decade it is not expected that the Republic of Bulgaria will face a threat of conventional military conflict threatening its territorial integrity. 12. The strategic risks and threats to the security and defence of the country are related to international terrorism and proliferation and use of weapons of mass destruction. Other risks and threats with a decisive impact on security and defence are the instability of democratic processes in the conflict regions; organised crime; illegal trafficking of strategic resources, technologies, weapons, drugs and people; as well as the destructive attacks on information systems; economic instability; environmental catastrophes, natural disasters and industrial accidents. 13. In present circumstances, the classical military factors for security and defence become relatively less significant. Non-military factors political, economic, diplomatic and information have an ever growing influence in guaranteeing the country s sovereignty, independence, security and territorial integrity. 14. The respect for democratic values and the international rule of law along with an active foreign policy will continue to contribute to recognition of the Republic of Bulgaria as a reliable ally and partner in sharing the responsibilities for international security and collective defence. 15. The national economic policy will increasingly contribute to the country s security and defence by guaranteeing sustainable development, active and stable participation, relevant to the national interests and potential, in the processes of economic integration on an inter-state, regional and global scale, along with our further integration in the European economic environment. 16. The development of the national education system, Bulgarian science and culture, and the social and health care for citizens are factors that will have a direct impact on the development of the security and defence system. 17. NATO membership is a factor of decisive importance for the security of the Republic of Bulgaria. Despite the low probability of an armed aggression against the Republic of Bulgaria in the next decade, should such an aggression occur, our country will be able to call on for greater military resources, through NATO s collective defence arrangements, than it could ever provide on its own. At the same time, the membership in NATO requires the
Republic of Bulgaria to develop relevant own military capabilities to contribute to the achievement of the goals and tasks of the organisation. II. Defence Goals and Missions 18. Defence is a system of activities conducted by the state with the purpose of building and employing capabilities to prevent and counteract military crises that threaten national security. Specific defence capabilities are employed to support the state institutions and society in crises of a non-military nature. 19. Defence s primary goal is to guarantee the country s sovereignty, security and independence and protect its territorial integrity. This goal will be accomplished in the context of the collective security and defence system and with the full commitment of national capabilities and resources. 20. The characteristics of the new risks and threats asymmetry, difficulty to predict, and capacity to influence regardless of distance set new and more arduous tests for the Bulgarian Armed Forces. This requires a radical change of national defence policy that involves a transition from a threat-based approach to a capabilities-based one. The Republic of Bulgaria builds its Armed Forces and other defence components as a combination of capabilities that are achievable and relevant to the strategic priorities. 21. The new defence policy requires a new vision for the role and tasks of the Armed Forces, their structure, composition and operational capabilities. 22. The development of Armed Forces should guarantee the maintenance of efficient, combat capable, multifunctional, modular and mobile units. They must be capable of joint action, deployable outside the territory of the country, relatively self-sufficient and sustainable; capable of responding to the challenges of the security environment in real time and interoperable with forces of our allies. The deployable forces are a priority in fulfilling the primary goal of defence. 23. The defence should provide complementary capabilities to perform the following missions: defence; in support of international peace and security; contribution to national security in peace time. 24. The defence mission includes activities related to the guarantee of national sovereignty, security and independence, and protection of the country s
territorial integrity, as well as that of NATO member states in the context of Article 5 of the North-Atlantic Treaty. 25. The mission in support of international peace and security is in implementation of international and coalition commitments to fight terrorism, prevent and manage crises and conflicts abroad, participate in multinational peace forces, activities in support of the evolving European Security and Defence Policy, arms control, non-proliferation of weapons of mass destruction and their means of delivery, international military co-operation, humanitarian assistance, strengthening of confidence and co-operation. 26. The contribution to national security in peace time includes maintenance of capabilities to support activities related to the control of air space and territorial waters, collecting and processing of information on the potential risks and threats, operations to deter and neutralise terrorist, extremist and criminal groups, protection of endangered strategic sites, protection and support of the population in natural disasters, industrial accidents and ecological catastrophes, rendering of humanitarian assistance, rescue and evacuation activities, and support, as appropriate, to other state bodies and organisations. ІІІ. Resource Parameters 27. The required operational capabilities of the Armed Forces are developed within the framework of the complex interaction of three main factors: threats, risks and opportunities ensuing from the security environment; collective defence requirements; availability of resources. 28. The main principles in the allocation and use of the national human, economic, financial, technological and information resources are: balance between the security and defence system requirements and the potential of the country; efficiency and effectiveness; prioritisation of capabilities of the Armed Forces. 29. Defence resource management is to be conducted using a single national system based on the programme approach. Defence programmes should be affordable and developed for a mid-term period, with a clear vision for the execution of projects. 30. People are the most important asset of defence. The defence needs require the human resources management policy to establish an effective system
to recruit, employ, educate, train, motivate, retain and discharge personnel in order to ensure sustainable development of defence capabilities. 31. The development of the national defence capabilities generates opportunities for the national economy to launch and develop new production, technologies and standards. 32. The advance of knowledge and the progress of science and technologies, particularly information technologies, have a priority role in the development of national defence capabilities. 33. The modernisation of armaments and equipment is a guarantee for the development of the required operational capabilities. It should be planned and conducted in a manner that will ensure the technological development of priority capabilities. 34. The professionalisation of the armed forces requires the development of public mechanisms and practices to motivate young people to adhere to national traditions and values. 35. The new security environment sets the need to develop a new type of defence policy. This requires the establishment and implementation of new strategies and doctrines in security and defence. The main national security and defence documents the National Security Concept and the Military Doctrine were elaborated for the period prior to the accession of the Republic of Bulgaria to NATO and have become outdated. 36. The Strategic Defence Review will initiate the elaboration of a National Security Strategy, National Military Strategy and a Long-term Vision for the development of the Armed Forces. 37. This Policy Framework involves and consolidates the efforts of state institutions and agencies as well as NGOs and seeks broad public support for the development and implementation of a new national security and defence policy. ***
STRATEGIC DEFENCE REVIEW І. PREFACE 1. The social and political development in the Republic of Bulgaria as well as the security environment has changed radically over the last fifteen years. Since 1989 Bulgaria has constituted itself as a democratic country with sustainable development, consistent policy and respect for universal human values. Acknowledging the integral nature of security, the Republic of Bulgaria assumes the challenge to share the responsibility for protection of human life and rights, of the rule of law, of international peace and security and of free economic relations. 2. The national interests define the Republic of Bulgaria s strategic goals and priorities and determine its security and defence policy. The Republic of Bulgaria s national interests comprise: sovereignty, independence and territorial integrity; the rule of law, rights and freedoms; economic and social stability and prosperity; international security, stability and peace; the principles and rules of international law. 3. The Republic of Bulgaria has adopted as its clear and firm policy the understanding that the collective security system is the optimal way to guarantee its national security. The Republic of Bulgaria s accession to the North Atlantic Treaty Organization (NATO) and in the future - to the European Union (EU), contributes to guaranteeing the national security and to the further consolidation of Europe whole, free and peaceful. The country s membership in these organizations brings responsibilities Bulgaria must be a provider as well as a beneficiary of security. 4. In order to meet the challenges of the new strategic environment and to overcome the existing gaps between its requirements and the capabilities of the national defence components, in spring 2003 the Government of Bulgaria decided to launch a Strategic Defence Review (SDR). Premises for wide national and international support were provided for at the initial phase of the Review, along with the establishment of departmental and interdepartmental working groups and bodies. The SDR process has integrated the expertise of state institutions, academic circles, non-governmental and public organizations. Parallel to that, experience and consultancy from NATO as a whole, as well as from separate member states have been widely used. 5. Understanding the need to change essentially the security system of the Republic of Bulgaria has been fundamental in the SDR elaborated documents The Policy Framework and The Planning Assumptions. Later, they have been translated and further developed into a Long-term Vision for
Development of the Armed Forces 2015, which provides the basic parameters and guidance for that development. The main goal of the Vision is to build up Armed Forces that are relevant in capability and scale to Bulgaria s needs so as to meet the new requirements of the security environment. Those forces must comprise combat capable, multifunctional, mobile, manoeuvrable and modular units with high combat effectiveness, useable across the full spectrum of missions and deployable for operations in NATO area of responsibility. They must be kept at an appropriate level of graduated combat readiness and be interoperable with the forces of our allies. In conformity with paragraph 35 of the Policy Framework, the Long-term Vision for Development of the Armed Forces 2015 redefines the basic principles and parameters in the present Military Doctrine and Military Strategy. This Vision shall also serve as a basis for the elaboration of plans for modernization, and organizational development and transformation of the Armed Forces in 2005 2015. ІІ. FUNDAMENTALS OF THE NATIONAL SECURITY STRATEGY 6. The Strategic Defence Review has initiated a process of redefinition of the security system based on two fundamental principles: integration of national efforts and resources on the one hand, and international strategic partnership and cooperation on the other. 7. The integration of national efforts and resources in the security system has been a fundamental principle in the documents, elaborated and adopted so far. It shall be the leading principle in the process of generating the basic provisions of the new national security legislation that has already begun. The National Security Strategy and the National Military Strategy shall regulate the functioning mechanism of the integral and integrated national security system, the rights and responsibilities of its elements and the ways they interact with one another. Thus and in accordance with the above principles and mechanism, the future Crisis Management Law shall regulate the public relations in this sphere on the basis of a network-centric management of the processes of prevention and response to crises as well as the elimination of crisis effects. 8. The strategic goal of the Republic of Bulgaria to guarantee its own security and maintain capabilities to contribute towards regional and world peace and stability is based on the perception that limited national potential and resources can only be compensated through integration into a collective security system. The analysis of risks and challenges has indicated that our country is not able to sustain all capabilities, needed to guarantee its security, within the available resources. On the other hand, the Republic of Bulgaria s commitment to contribute to the collective security system requires the maintenance of a wide spectrum of capabilities of the national security system, rather than limited capabilities in specific areas. The conclusion is that international cooperation in the sphere of security is the only possible
philosophy to reach balance. Such kind of cooperation could vary: from cooperation in the sphere of defence policy and planning, which is already a fact in NATO, to operational cooperation, execution of common tasks, development of joint projects for rearmament and modernization and creation of bilateral or multinational packages of forces and capabilities. 9. Under the present circumstances, the classic military capabilities for guaranteeing security and defence become less significant. There is no clear boundary between external and internal security. Non-military factors political, economic, information have an ever-growing role for guaranteeing the national interests. ІІІ. FUNDAMENTAL ELEMENTS OF THE SECURITY SYSTEM 10. A conventional military conflict threatening the Republic of Bulgaria s sovereignty and territorial integrity is highly unlikely in the next decade. However, should such a threat arise, through NATO s collective defence arrangements our country shall be able to call on greater military resources, than it could ever provide on its own. Bulgaria s providing military capabilities to NATO or coalition operations is much more likely than mobilization of forces to defeat a conventional threat against the country. 11. The adjacent region of Western Balkans with its instability remains a factor that could exert direct influence on Bulgaria s security environment. Acts of terrorism, national and religious extremism, and ethnic tension, that characterize the region, could, under certain circumstances, escalate to military threats. At the same time it must be recognized that the international community shall not allow proliferation of such negative effects. Democratic processes and economic development of countries in the region provide for positive changes and decrease in the intensity of acts that could cause instability. In the future, both the European and Euro-Atlantic integration of these countries shall have a crucial role in this respect. 12. Regional instability and conflicts in the Middle East, the Caucasus region, Central Asia and North Africa have the potential to escalate, which could have an indirect impact on the security of the Republic of Bulgaria, or involve our Armed Forces in fulfilment of coalition or Alliance commitments. Participation in Alliance or coalition operations could be provoked by threats of international terrorism, use and proliferation of weapons of mass destruction, instability of democratic processes in conflict regions, organized crime, illicit trafficking of strategic materials, technology, weapons, drugs and people, as well as destructive attacks on information systems. 13. Bulgaria s accession to NATO and the intensification of the threat of global terrorist acts have fundamentally changed the security environment and require a redefinition of the ways in which the Armed Forces achieve the defined defence goals and tasks. The Armed Forces of the country could play a preventive role in improving the security environment by actively working at all times to reduce the causes of conflicts, and strengthening the means and
capabilities for crisis management. 14. Regionally, this involves different measures to build confidence, exchange information and conduct combined military exercises, which would further contribute to develop trust in the region and improve the abilities to work together. The Multinational Peace Force in Southeastern Europe (SEEBRIG) and the Black Sea Naval Cooperation Task Group (BLACKSEАFOR) are the main multinational regional formations, which contribute to such activities, but the Bulgarian Armed Forces could also participate, as appropriate, in other exercises and initiatives on bilateral and multilateral basis. 15. In a wider range, Bulgaria has capabilities and responsibilities for active and effective participation in NATO, and, after accession, in EU activities. It is necessary to consider the possibility to maintain readiness should the Bulgarian state leadership decide to contribute to UN-led operations. These actions and commitments shall also serve to discourage any aggression against the Republic of Bulgaria, since it will be clear to any potential aggressor that the country possesses its own defence resources, and can also call on those of other countries, including the defence capabilities of NATO member states under Article 5 of the North Atlantic Treaty. 16. Because of the existence and interaction of many interrelated factors in the global security context, it is realistic to assume that the Armed Forces will also have to take other actions to reduce the negative effect on national security as a result of the new risks and threats. This includes tasks against organized crime, illegal trafficking of strategic resources, weapons, drugs and people. Under the present circumstances none of the ministries or agencies could deal on its own with these tasks. That s why it is necessary to coordinate and integrate the efforts and achieve a unity of actions in operations to guarantee internal security and public order recognizing the leading role of the Ministry of Interior. 17. International terrorism has demonstrates will and capability to achieve global strategic goals. On the other hand, the traditional border between external and internal security, and between terrorist acts and military actions has become more and more obscure. This requires the Armed Forces to be capable to take preventive actions against sources of terrorism and potential perpetrators before they reach our national boundaries for either transit or attack against the country as a part of the collective security system. For these reasons our Armed Forces have to assume responsibilities in an area that is wider than the Balkan and the Black Sea region. The Armed Forces must be prepared to participate in NATO-, EU- and UN-led peacekeeping and stabilization operations in the immediate vicinity or in geographically distant regions that is a serious contribution to international peace and security as well as to national security of the country. The main requirements to the function, structure and capabilities of such Armed Forces are determined in the NATO
Force Goals package. The participation of Bulgarian Armed Forces in NATO operations outside the country shall be compensated with defence from the Alliance under Article 5 of the North Atlantic Treaty. IV. LONG-TERM VISION FOR DEVELOPMENT OF THE ARMED FORCES 2015 18. This Vision has been developed in line with the declared commitment of the government to keep the annual defence expenditures within 2,6% of the GDP for the period 2005-2007 and the forecasted relative share of annual defence expenditures within the same framework for the period 2007-2015. The quantitative and qualitative parameters of this Vision reflect this commitment, and their accomplishment shall be directly related to maintaining the level of defence expenditures. 19. The Vision has been aligned with the primary goal of defence, the missions and tasks as defined by the Policy Framework and the Planning Assumptions, as well as the agreed Force Goals. 20. The primary goal of defence is to guarantee the sovereignty, security, independence and territorial integrity of the Republic of Bulgaria. This goal shall be accomplished in context of the collective security and defence system, with full commitment of national capabilities and resources. For fulfilling this task in the security environment, the Armed Forces of the Republic of Bulgaria shall develop and maintain capabilities to carry out tasks, as follows: Guarantee the sovereignty, security, independence and territorial integrity of the Republic of Bulgaria within the collective security architecture; Provide the necessary capabilities to NATO in line with national commitments; Provide for implementation of the principles and regulations of international law and the Charter of the United Nations Organization (UN); Fulfil Bulgaria s commitments toward the European Union, and to any other bilateral and multilateral agreements in the field of military cooperation; Support implementation of the principles and regulations of the Organization of Security and Cooperation in Europe (OSCE) and the efforts of the latter for peaceful resolution of existing regional conflicts; Fulfil Bulgaria s commitments to support world peace, security and stability; Assist the civilian population in cases of natural disasters, catastrophes or terrorist acts, as well as national participation in international humanitarian activities in other countries. 21. In order the Armed Forces to carry out their functions effectively, their development must be in line with the changes of the security environment. These changes are so considerable, that they call for a comprehensive
transformation and redefinition in the security system, building on new visions, concepts and doctrines for recruitment, build-up, training, deployment and sustainment of the Armed Forces. In planning and programming the future Armed Forces it has to be considered that modernization is only a part of the transformation. Changes in the doctrinal basis, organizational structure, training of personnel, build-up of command staff and infrastructure must also be part of the transformation process. The Armed Forces must master all their expertise and experience in order to carry into effect such a transformation that generates the best and most suitable capabilities within current resource constraints. The first and main step in this extremely important process shall be the deactivation of existing capabilities that are no longer needed. This process may need additional time and funding as it is related to the utilization of dismantled armament, equipment and technology. Although painful, this would be a necessary process even if it would include reduction of personnel and structures in order to ensure relevance between capabilities and requirements. 22. At present as well as during the envisaged period, Bulgaria shall need Armed Forces of new quality although less in number. As it has been specified by the Force Goals, in the collective defence environment the Armed Forces must have the necessary interoperability in order to function effectively within the military formations of the Alliance. Having in mind the insufficient amount of resources available, it will not be possible to carry out a comprehensive modernization. A possible approach to this problem would be to carry out an adapted type of modernization that on the first place reflects national interests and commitments towards NATO, and at the same time preserves capabilities, which, if necessary, could be developed in the future. 23. The Armed Forces could also be used to assist the state and local authorities and the civilian population, both in the country and abroad, in cases of environmental catastrophes, natural disasters, accidents or terrorist acts. 24. The new missions and tasks require a transformation of the organizational structure, functional links and administrative practices within the Ministry of Defence, the General Staff and the Bulgarian Armed Forces. The purpose of this transformation shall be to build up modern, usable and effective Armed Forces. A new approach is required to implement the principles of jointness, modularity, functionality and deployability. Major efforts shall be focused on multifunctionality in order to increase operational effect and reduce cost of personnel, infrastructure, combat equipment and training. 25. Adequate resources shall be required in order to accomplish the defence goals and implement relevant concepts and plans to that end. А. FINANCES: There is no realistic possibility to increase the financial parameters for the Armed Forces. Additional resources required for new capital investment ought to be provided mainly through reduction of maintenance costs for specific operational capabilities, which would not be
necessary in the future, or through achieving maximum efficiency in defence resource spending. B. FORCES: Development and generation of required capabilities that would enable the fulfilment of goals would be possible through maintaining forces that are ready to use. Elements of the Armed Forces that do not have the necessary level of training and do not maintain the required state of readiness become a financial burden for Bulgaria. Services HQ must ensure allocation of resources for training of their subordinate units and sub-units in order to guarantee high standards of training and maintenance of the necessary level of combat readiness. Despite the tendency to build fully professional Armed Forces, recruitment of conscripts shall continue. The analysis of demographic realities and their possible future development till 2015 indicates that despite the forecasted overall decrease, advance in age and immigration of the population, the existing amount of human resources at an age, suitable for military service, shall be sufficient to ensure the normal functioning of the Armed Forces in accordance with the principles set in this Vision. The fact that the Armed Forces shall increasingly rely on volunteer forces suggests that substantial amount of financial resources are to be allocated in order to provide for their cost and increase the personnel s quality of life, to include programmes for motivation, education, requalification and personal development after completion of contract duties. The military education system shall comply with the Law on Defence and Armed Forces and the Law on Higher Education so that military schools maintain the acquired institutional and programme accreditation, and higher military education corresponds to that acquired in civil educational institutions. This shall ensure the required number of military personnel with capabilities relevant to the needs of the forces. Acquisition by the Armed Forces of more technologically advanced weapon systems shall make the military profession even more attractive and shall be an additional motivation factor for people with appropriate education and qualification. C. PROGRAMMES FOR DEVELOPMENT: While drafting specific programmes for development, the proposals on separate programme modules should be elaborated following a prototype structure that may include: Missions; Required operational capabilities; Operational concept; Planning scenarios; Force requirements. D. PUBLIC SUPPORT: In an open society, the state security and defence policy needs a broad political, expert and public support. 26. The Armed Forces have always been one of the main generators of national values and must continue to contribute to building national and civil self-awareness. A major element in fulfilling this task shall be the
popularization of our understanding of the security environment and the role that Bulgaria plays within it, the arguments in favour of the adopted approach for guaranteeing national interests as well as the Vision for development of the Armed Forces. This shall be achieved via an informed exchange of opinions on all levels of government, with the active participation of non-governmental organizations, the goal being to reach a consensus on national security and defence policy. 27. Despite the numerous defence missions and tasks, analyses indicate that their simultaneous execution shall neither be necessary nor could be financially ensured. The main goal shall be to develop professionally trained and flexible forces capable of executing a wide range of missions. To this end, clear priorities need to be determined and the respective resources for their accomplishment need to be provided. Efforts should be focused mainly on development of deployable forces capable of executing the primary goal of defence. These forces should have characteristics such as high combat effectiveness, usability across the full spectrum of missions as well as capabilities for deployment in NATO area of responsibility. These forces should also be highly maneuverable, mobile, with combat support capabilities and relevant level of graduated combat readiness, that, in addition, shall allow them to fulfil most missions and tasks that are currently assigned to in-place forces. 28. A priority in the Armed Forces development shall be the progressive build-up of the required defence operational capabilities. The conclusions reached after the analysis of the strategic environment, the missions and tasks, set the requirements to services and troops and the financial frame needed to meet those requirements. The defence capabilities are the potential to achieve the primary defence mission in support of the government policy in the field of security and defence. In their development, those capabilities have to be perceived as composed of the following major components: a. Information support; b. Command and control; c. Training for combat use; d. Deployment outside the country; e. Execution of missions; f. Protection of forces; g. Logistics sustainment. 29. Building on the achievements so far, attention has to be focused on building new structures of the Armed Forces that have the necessary defence capabilities and reach better operational results. Fewer units, better manned, equipped and trained shall generate more and more effective combat capabilities. 30. The functional structure of the Armed Forces of the Republic of Bulgaria shall consist of: Active forces:
- A package of modularly structured deployable forces that could be used across the full spectrum of NATO-led operations. The normal formation readiness cycle of the deployable forces must include training and operational readiness stages; - A small package of highly capable forces that generate immediate reaction forces to contribute to national security in peacetime and counter potential asymmetric threats in particular. Support elements and forces of lower readiness including in-place forces for logistic and maintenance support, bases, depots, etc. Such functional structure reflects the new tendencies in optimizing command structures in NATO Armed Forces as well as the training of fewer, but more capable units and sub-units so that the percentage of usable forces can be increased. This shall also provide additional resources for modernization, rearmament and improvement of the quality of life of service personnel. 31. The new structures and capabilities of the Armed Forces, proposed by this Vision, can be effectively managed by a three-level command structure, comprising of: Strategic level; Operational level; Tactical level. 32. The leadership of defence and Armed Forces of the Republic of Bulgaria is carried out by the National Assembly, the President and the Council of Ministers in conformity with the Constitution and national legislation. On the strategic level the Ministry of Defence is the main body charged with the implementation of the Government s defence policy. The Ministry of Defence is an integrated leadership module, which combines both civilian and military expertise and functions on the principles of civilian control over the Armed Forces, rationality in the governing process, delegation of rights and responsibilities, as well as on optimization and effectiveness in the administrative practices. These shall be the basic principles in elaborating new organizational statutes in the field of defence. 33. The operational level of the Armed Forces command structure shall comprise a Joint Operational Command (JOC) as an instrument for implementation of the principle of jointness. The JOC shall execute the planning and the operational management of units from the Bulgarian Armed Forces during their participation in operations both inside the country and abroad, ensuring the joint use of the forces. When national units take part in international NATO- or UN-led operations, or in coalition operations, JOC shall carry out and coordinate the whole national administrative support following the transfer of operational management to the commander of the operation. JOC shall be in charge of and coordinate the efforts of the units and shall be able to make real-time decisions by being itself a national centre for coordination with the deployed forces commands (including foreign), as well as with other
national security system bodies and organizations that are involved in the immediate operational activities. Integral parts of JOC shall be the following: The National Military Command Centre, Air Sovereignty Operational Centre, Naval Surveillance Operations Centre, Logistics Centre, the Civil Military Coordination Centre, etc. The services HQ shall be responsible for recruitment, manning, training and providing units and sub-units to JOC for both joint training and participation in operations. The services HQ shall also be responsible for the recovery of personnel and refill of units that have participated in an operation. Bodies for centralized communication, information and logistics support shall be established in order to ensure the proper functioning of all elements of the organizational structure. The concept for their development shall be elaborated following the final approval of the Bulgarian Armed Forces structure. 34. The tactical level of the Armed Forces command structure comprises units (brigade, air base and naval base), and sub-units, which are directly subordinated to the services HQ as to their training and to JOC as to their participation in operations. The alternatives of the major tactical units and subunits are structured as follows: It is planned that mechanized battalions shall comprise a combination of both active and reserve companies. The first shall be manned and equipped to no less than 90% and the latter manned to over 50% and equipped to 100%. Major emphasis has been put on the deployable forces assigned to take part in collective operations both outside and inside the country. These forces have the highest level of manning and equipment, with an overall ratio of no less than 2:1 in favour of their active components. Forces that are not planned to participate in NATO-led operations shall comprise of a majority of reserve components and their combat training and manning shall require greater amount of resources. In order to ensure the necessary combat capabilities services shall comprise a package of units for combat, logistics and communications support. 35. The main parameters of the structural transformation within this Vision s timeframe provide for the armed forces to maintain and develop units and infrastructure as follows: А. The Land Forces shall comprise two mechanized brigades; one light infantry brigade; one SOF brigade; one artillery, one engineer, and one logistics regiments; units for combat support and combat service support, as well as a system of training centres and ranges. B. The Air Force shall maintain the following air bases: one fighter base; one helicopter base; one transport/air-lift base; one flying training base and in case of a need for aircraft repositioning one forward operational base. The system of ground based air-defence units shall consist of one surface-to-air (SAM) brigade and one radar regiment. An infrastructure for combat training and combat support shall also be maintained. C. Along with the decommissioning of surplus armaments and
equipment, the Navy shall reduce its structures to two naval bases, with the respective combat support, combat service support and training elements. 36. Specific quantitative parameters have been set, as a result of the Strategic Defence Review, in order to develop the capabilities needed for the execution of the full spectrum of missions and tasks of the Armed Forces. Further elaboration on the details of force structures shall be done in conformity with those parameters. They ought to correspond to the forecast budget funds that shall be available to the Ministry of Defence during the period 2005 2015. A reduction of major armaments and equipment shall be carried out in accordance with the new tasks of forces along with a simultaneous gradual modernization. 37. Modernization of forces, in accordance with the projected manpower, armaments and equipment shall be an essential element of the process of comprehensive transformation of the Armed Forces. The process of modernization shall be vital for the transformation of forces and shall require considerable funding that amount up to 20-25% of the annual defence expenditure in the above-mentioned period. The balance between the manpower of the transforming forces and their modernization shall only be achieved, if the government keeps its commitment to defence expenditures during that period. 38. The process of transformation and modernization of the Armed Forces shall require the involvement of the national scientific potential and research capabilities in order to ensure the preparation and support to modernization projects on the one hand, and to create possibilities for fast transfer of civilian projects into defence products on the other. The rational use of the abilities of the national defence industry in the context of mutually beneficial international integration and establishment of strategic partnerships with global corporations from NATO and EU countries shall be an essential principle in the modernization process. Participation of defence industry companies in the Armed Forces modernization shall be carried out in full transparency of requirements and competitiveness, in their capacity as: a. Modernization contractors in spheres in which the Republic of Bulgaria has a production and technological potential; b. Sub-contractors of international companies working on modernization projects; c. Major sub-suppliers in offset programmes related to Armed Forces modernization projects. 39. The timetable for implementation of the reforms of the structures and transformation of forces is subject to further specification, a priority being given to the creation of new structures. The respective reduction of personnel shall come as a result of natural processes of exemption from regular military service and optimization of the ratio between cadre and conscript personnel. Changes in major armament by years shall be carried out in line with the analysis of the life cycle of available armaments and requirements for modernization.