MYKOLASROMERISUNIVERSITY

FACULTY OF POLITICS AND MANAGEMENT

DEPARTMENT OF PUBLIC ADMINISTRATION

GIEDRĖ JANKAUSKAITĖ

‘Good governance in the Ministry of National Defence Republic of Lithuania’

IP Summer School on Good Governance in the Context of the European Integration –

Institutions-Rights-Societies

paper

Bialystok, 2010

Abstract

This paper was prepared for Erasmus Intensive Programme (IP) Summer School in Bialystok, Poland, 2010. The aim of this paper is to present an analysis of instances of good governance in the Ministry of National Defence (MoND) in the period since 1990. The analysis has shoved the institution concern among other things has a few outstanding good governance mechanisms of policy and implementation, namely: (i) membership of NATO, (ii) international operations and missions, (iii) defence reform. The analysis showed that all these mechanisms can be generally considered as advantages of good governance however, there are a few spots of concern, such asunfulfilled commitments to NATO.

Keywords: good governance, Lithuania, the Ministry of National Defence, membership of NATO, defence reform.

Introduction

This paper is a part of the project of Erasmus Intensive Programme in Bialystok, Poland, 2010. The Ministry of National Defence plays a significant role in ensuring thenational security, which is perceived as retention unity of territory and sovereignty and guaranteeing the inner security and order, safeguardingthe democratic constitution and protecting the natural environment and cultural values.

After the restoration of independence on 11 March 1990, the state needed armed forces in order to ensure its independent existence. Therefore, on 25 April, the National Defence Department was set up, which had to develop and implement the concept of national defence and a year later on 16 October 1991, the Lithuanian Government established the Ministry of National Defence.

Currently the functions of Ministry include:

  1. Implementation of joint policy with NATO, cooperation with foreign countries in defence sector
  2. Representation of Lithuania by coordination of international humanitarian law
  3. Management of national defence and security financial resources
  4. Army provision with armament, equipment and other resources
  5. Implementation of personnel management policy, preparation of military reserve
  6. Administration of compulsory military draft
  7. Preparation of society for civil resistance
  8. Planning national mobilisation

The main aim of this paper is to analyze a practice of policy formulation and implementation in the Ministry of National Defence, its mechanisms and its compatibility with principles of good governance in the MoND.

This paper has the following objectives:

  1. Description of the structure, strategic aim and financing of the MoND
  2. Description of the main policies implemented by MoND since 1994: (i) accession of NATO, (ii) international organizations and missions, (iii) defence reform.
  3. Identificating the strengths and weaknesses of the ministry implemented policies in the context of good governance.

The method of this paper is based on analysis organized around the principles of good governance which were a part of the curriculum of the Summer School. Characteristics of good governance include:

  1. Consensus oriented
  2. Participatory
  3. Follows the rule of law
  4. Effective and efficient
  5. Equitable and inclusive
  6. Responsive
  7. Transparent
  8. Accountable

1. Structure, strategic aim and financing of the Ministry of National Defence

1. 1. Structure

The system of Minisrtry of national Defence has twofold structure:

  1. MoND, which is responsible for formulation and implementation of defence policy (table 1)
  2. Lithuanian Armed Forces, which are tasked with military operations (table 2)

Table 1. Structure of MoND

The source:

Table 2. Structure of Lithuanian Armed Forces

The source:

The main structure that connects these two elements of the national defence system is under the Chief of Defence Stuff.

1.2. Strategic aim

Lithuanian Defence Policy refers to the principles and provisions of national security ensurement indicated in the National Security Strategy of the Republic of Lithuania. The aim of the National Security Strategy is to provide a vision of the safe development of the State, to lay down the main tasks and objectives of a national security policy, national interests and the measures required for their implementation in the fields of policy, diplomacy, defence, economy and other fields. This Strategy is based on the Constitution of the Republic of Lithuania, the Law on the Basics of National Security, the North Atlantic Treaty and the Treaty on European Union.[1]

National security is the basis of country's welfare and prosperity. Only by ensuring national security can the country create appropriate conditions for emergence and increase of economic, social, and cultural potential of its society. ‘Secure country means prosperous society’ is a saying describing the significance of national security for country administration well. Among various measures of Lithuanian domestic and foreign policy for national security ensurement military defence is especially important.[2]

1.3. Budget

Defence spending of Lithuania is planned regarding both the demands and financial potential of Lithuania. With restricted defence resources in mind MoND seeks to balance the planned capabilities of the National Defence System and the available human, financial and material resources.

Assignations of the Ministry of National Defence were approved on 21 January 2009 by decision of the Government of the Republic of Lithuania No. 32 ‘On the distribution of assignations approved for the budget of the Republic of Lithuania for 2009 according to the programmes’. They come as 1,01 5 from the GDP (claimed in October 2008) or 1,16 % from the GDP (claimed on 30 March 2009), i.e. 97,7 m Eur, or 4,3 %, from all the spending planned in the national budget (7808,7 m Eur).

Assignations approved to the Ministry of National Defence, as holder of the assignations, in 2009 were cut by 24,3 m Eur, or 6,7% in comparison to the realization of defence budget estimate in 2008 (as of 1 January 2009). Inevitable respective curtailment of all the financed areas followed: assignations for personnel were cut by 11,7 m Eur, or 5,8 %, assignations for spending (despite assignations for armaments and military equipment) - by 12,2 m Eur, or 15,1 %, assignations for armaments and military equipment - by 1,7m Eur, or 10,3 %.

In January 2009 prices of heating, electricity and other public utilities rose along with GDP tax and insufficient financing in 2008 entailed a 4.8 m Eur debt for 2008 calculated on 1 January 2009.[3]

2. Practice of good governance

2.1 Accession of NATO

Despite the obvious unity of the Baltic states, Lithuania has become the leader in the region's efforts to gain membership in NATO. In November 2002, Lithuania was invited to join the North Atlantic Treaty Organization (NATO) and officially became a member on March 29, 2004. On May 1 of that same year, Lithuania joined the European Union. Membership in this Organisation ensures military, political and economic security of the Republic of Lithuania. But at the same time Lithuaniahave to fulfil international commitments to NATO (table 3).

Table 3. Lithuania‘s commitments to NATO

Units / Implementation timeline / Forces generating the deployable unit
Battalion- size
Task group / 1st Battalion Task Group ready since the end of 2005;
2nd Battalion Task Group ready since the end of 2009;
By 2015-brigade size unit ready to ensure full rotation cycle of one Battalion Task Group. / BIM „Iron Wolf“,
Engineer Battalion,
Logistics Command,
National Defence Volunteers,
Military Police
Special Operations
Forces Squadron / Ready since 2005 / Special Operations Forces
Explosive Ordnance
Disposal Team / Ready by the end 2007 / Engineer Battalion
Movement Control
Team / Ready by the end 2006 / Logistics Command
(MovementControlCenter)
Mine Counter
Measure Ship / Ready by the end of 2006 / Navy Flotilla
Water Purification Unit / Fully ready by the end of 2006 / Logistics Command
CIMIC Group / Ready by the end of 2009 / National Defence Volunteers

The source: White paper: Lithuanian defence policy 2006

2.1.1. Criticism

Because of further cutbacks in funding of national defence Lithuania might be unable to be a NATO member state anymore as even now it lacks money for the most necessities.

There is a concern about the long-term lack of finance for the national defence system, a lot of propaganda saying that everything is alright and that we have ones of the strongest armed forces in the world have largely affected the national defence system. Add the threat of crisis, cutbacks in finance and we are in the desperate situation.

The ongoing situation might pose a threat to national security. There is a lack of money to perform all functions. To compare with other states, Lithuania has the smallest army; there is a question whether we will reduce it even more. Soldiers receive lower pays, but we do not have money to ensure them a possibility of constant training, learning to defend their country.

Lithuania had to abandon its defence attaches to Great Britain, Germany and France due to cut funding of representation offices, even though their presence was very important for communication with NATO.

Lithuania might not be able to be an Alliance member due to the constant reduction of funding. NATO member states are obliged to allocate 2 percent of their gross domestic product (GDP) to national defence. The Estonians retain the level of 1.8 percent of GDP, Lithuania has dropped to 0.9 percent and approaches 0.8 percent of GDP, which means that soon we will be unable to be NATO members. Our partnership is very important, solidarity is crucial, and if we do not make at least a minimum input to be ready to defend our country, NATO will soon raise a question whether we indeed want to be NATO members.

2.2. International operations and missions

The participation of Member States in NATO, EU, OSCE and UN international operations and missions is of fundamental importance to these organizations. Through participation with its troops in crisis response operations, Lithuania, as an active member of the international community,contributes to the world’s security and stability.

Lithuania has been taking part in international peacekeeping operations since 1994, when the first military unit was sent to the United Nations Protection Force in Croatia. During the process of joining NATO, Lithuanian troops were deployed within multinational units to crisis regions in Central and South Asia, the South Caucasus and the Balkans. Ten years later, in 2004 Lithuania became a member of NATO. Through membership in the Alliance, Lithuania has not only acquired a collective defence guarantee, but has also taken upon itself the responsibility to deal with threats arising to its Allies, as it is vital to national security. Since 1994, more than 3,000 Lithuanian military personnel have served in NATO, EU and coalition-led missions and operations, UN-led peace and humanitarian operations, and OSCE training and observation missions. The geographical range of military deployments has spread from Albania, Bosnia and Herzegovina, Croatia, Serbia and Montenegro to Georgia, Afghanistan, Iraq and Pakistan.

Around 300 Lithuanian military and civilian personnel are currently deployed in international operations. About ten percent of the country’s defence budget is allocated to international military commitments.

Lithuania is increasing the size of the units it sends to operations abroad, by reducing the number of operations troops are involved in. Such an approach allows for the consolidation of national contributions, the more efficient allocation of resources, and a better testing of capabilities. Commanding and staff officers will be offered better opportunities to serve in higher positions,and troops will be able to gain more experience. The Lithuanian military units currently deployed in operations have been supplied with advanced equipment and have received good training, 3which ensures interoperability within multinational contingents in areas of operations.[4]

2.3. Defence Reform. Modernisation of Lithuanian Armed Forces.

The strategic goal of the defence transformation is to develop highly capable, modern Armed Forces ready to carry out their tasks in Lithuania and generate deployable, sustainable units for the full spectrum of NATO operations. Lithuanian Armed Forces’ goals:

  • at least 10% of the Land Forces planned for or undertaking sustained operations at any given time,
  • at least 50% of the Land Forces structured, trained and equipped for deployed operations outside Lithuania.

This means that upon the completion of the defence reform by 2014 the LAF must be able to sustain a battalion task group with all combat support and combat service support elements (around 950 soldiers) and a Squadron of Special Operations Forces (up to 50 soldiers) in one operation, orcompany size specialised combat units in three operations.[5]

3. Strengths and weaknesses analysis

Above I have described the three outstanding policies that are the most innovative as compared to the general trends in the Lithuanian civil service.

These mechanisms are specifically intended for the improvement of governance. However, these mechanisms were introduced only recently and effects are not jet well understood.

Table 4 summarizes the strengths and weaknesses of the analyzed policies based on information available.

Table4. Summary of analysis of strengths and weaknesses of select policy implemented in the Ministry of National Defence.

Accession of NATO / International operations and missions / Defence reform
Consensus oriented / + / + / ?
Participatory / + / + / +
Follows the rule of law / ? / + / +
Effective and efficient / + / ? / ?
Equitable and inclusive / + / + / +
Responsive / + / + / +
Transparent / + / + / +
Accountable / + / + / +

Meanings of the symbols:‘+’means that the principle is observed; ‘-‘means that the principle is not observed

‘?’means that there is not enough data for evaluation

As it is obvious from the table above principles of good governance are generally observed, however there is room for improvement. Nevertheless, one can make argument that expansion of such practices has the potential possibility to affect the condition of governance on the ministerial level.

Conclusion

  1. The most important objective of the country’s defence policy is to safeguard the vital interests as defined in the National Security Strategy:the sovereignty of the Republic of Lithuania, its territorial integrity; respect for human and civil rights andfreedoms; and the peace and prosperity of the state.
  2. The most visible and important achievements in terms of good governance in the Ministry of National Defence were: accession of NATO, participation in international operations and missions and modernization of Lithuanian Armed Forces.
  3. The accession to NATO was a major success, which proved the capacity of the Ministry in terms of good governance. However current management of the membership suffers from lack of finance.
  4. MoND manages a variety of international missions which are considered central to the success in the NATO framework. There is no relevant data which could allow us to claim that they are organized in contradiction to the basic good governance principles.
  5. Defence reform is still in process, therefore it is hard to tell if the practice will maintain on track in terms of good governance.

Sources of information:

  1. Defence Reform. Modernisation of the Lithuanian Armed Forces. Fact sheet, May 2005.
  2. Guidelines of the Minister of National Defence 2009-2014
  3. National security strategy 2005.
  4. The Lithuanian Armed Forces. In Service for Peace.-Kaunas: ARX Baltica,-ISBN 978-9955-463-18-4
  5. White paper. Lithuanian defence policy 2006 (3,3 MB)
  6. Krašto apsaugos ministerijos internetinis puslapis. [retrieved: 2010.07.06]
  7. The Ministry of National Defence internet page. [retrieved: 2010.07.06]
  8. The Lithuanian Tribune. News and analysis from Lithuania. [retrieved: 2010.06.30]
  9. Structure of Lithuanian Armed Forces. [retrieved: 2010.07.06]

[1] National Security Startegy 2005

[2]

[3]

[4] The Lithuanian Armed Forces. In Service for Peace.

[5] Defence Reform. Modernisation of the Lithuanian Armed Forces.