No. 01/98
July 1998

Collaboration with the Baltic states

General information

The three Baltic states, Estonia, Latvia and Lithuania, declared their renewed independence in 1990 after having been occupied by the Soviet Union since 1940. In September 1991 these countries became members of the UN. Together the three countries have a total population of almost eight million of which around 1.5 million are Russians. Lithuania is the largest of the three countries in terms of population and land area. Its 3.7 million inhabitants are distributed over an area twice the size of Belgium. The capital city of Vilnius has a population of some 574,000 (1995). Of the three Baltic states, Lithuania has the lowest proportion of Russians, 8.5 percent. Poles make up 7 percent. Estonia has a population of 1.5 million of which 30 percent are Russians. The capital Tallinn has a population of 442,000 (1995). Among Latvia's total population of 2.6 million, 54 percent are Latvians while Russians, Belarussians, Ukrainians and others make up the remainder. Around 850,000 people live in Latvia's capital city of Riga. The Estonian language belongs, like Finnish, to the Ugric family of languages while Latvian and Lithuanian belong to the Baltic group.

In the years following liberation from the former Soviet Union, the three Baltic countries have concentrated on the development of democracy and a market economy. The transition from the Communist to a democratic system has faced society with major challenges made all the more daunting by the already strained economies of the three countries. The GNP (gross national product) per inhabitant fell sharply during the first few years of independence while unemployment, poverty and criminality all increased. In terms of the UN Development Programme (UNDP) index, representing the level of development for virtually every country in the world, Estonia's ranking fell from 29th out of 173 in 1994 to 71st out of 175 in 1997. Lithuania was ranked 71st in 1994 but was down to 76th in 1997. Latvia suffered the greatest fall from 30th in 1994 to 92nd in 1997.

Defence related cooperation with the Baltic states

Norwegian policies over the post-war years have been directed towards the Baltic Region only to a minor degree and, in the period following the dissolution of the Soviet Union, Norwegian views as to the attitude to be adopted towards the new situation in this area were characterised by some uncertainty. Norway's involvement in the Baltic countries, both with regard to security and defence policy matters and in other areas, has increased significantly over the last three or four years. Norwegian collaboration with the Baltic countries in the defence field has to date mainly been centred on participation in the larger multilateral collaborative projects. Taking part in these projects is relatively demanding in terms of both financial and human resources.

The core group of countries in the projects described below consists of the Baltic and Nordic countries, the United States, the United Kingdom and Germany. Other countries such as the Netherlands, France, Poland, Belgium, Switzerland and Iceland are involved in some of the projects. Otherwise there is little separate Nordic collaboration in the area of defence related support for the Baltic countries. Rather it could be said that the Nordic countries contribute towards support in this field within a broader multilateral framework. Questions touching on defence related collaboration with the Baltic countries are meanwhile naturally on the agenda whenever representatives of the Nordic countries meet.

Even though, geographically speaking, Norway is not a Baltic country, it is in our interest to contribute towards the development of stable and democratic conditions in this region. Continuing positive developments in this part of Europe could quickly prove beneficial to Norway too. Integration of the Baltic countries into the existing structure for security and cooperation in the West is an important element of such a development. It is essential that these countries should assume a clearly defined status with regard to their association with the security policy of the rest of Europe. The Baltic states are not included in the first round of NATO enlargement in 1999. Even though the Nordic countries are already extensively engaged in military related cooperation with the Baltic countries, they cannot in any circumstances or in any way assume sole responsibility for Baltic security and defence policy. This is well understood by the major western countries. Cooperation under the auspices of the Partnership for Peace (PfP) and the newly established Euro-Atlantic Partnership Council (EAPC) will be able to provide an important part of the framework for the future security policy affiliations of the Baltic countries. The far-reaching involvement of the United States with the Baltic countries is already well known. A clear expression of this involvement can be seen in the agreements concluded between the United States and each of the Baltic countries earlier this year. The fact that the United States and many European countries are working together to provide support for the Baltic states bodes well for the future.

It is important, however, that focusing on the Baltic countries in this way should not contribute towards the marginalisation of Russia. This would not be in the interests of the Baltic states or of other countries. Nevertheless, Russia cannot have any right of veto where the security and defence policy affiliations of the Baltic countries are concerned. The aim should be to promote stability in the relations between Russia and the Baltic states and the full acceptance by Russia that the Baltic countries are independent nations with sovereign rights to choose how their security policies should be based. The conclusion in autumn 1997 of a treaty between Russia and Lithuania finally resolving the disputed border between the two countries round the Kaliningrad enclave is an important step in the right direction.

Since 1992, when Norway gave its first defence related assistance to the Baltic countries in the form of uniform materials and boots, the value of the aid provided has amounted to NOK 97 million. This sum includes Norwegian contributions to multilateral cooperation, bilateral contacts between Norway and the individual Baltic countries as well as the value of material aid provided.

Multilateral cooperation

The Joint Baltic Peace-keeping Battalion, BALTBAT

Norway has been a participant in the so-called BALTBAT project right from the start in 1994. This project involves collaboration between a number of western countries and the three Baltic states in the establishment of a joint Baltic peace-keeping battalion. Norway has had a particular responsibility for the training of the Estonian company, ESTCOY, and for the medical function in general. ESTCOY trained in Norway during autumn 1996 and in spring 1997 ESTCOY served as part of NORBATT in Lebanon. The battalion, having completed its period of instruction and training, can now be regarded as operationally ready for participation in peace-keeping operations.

The countries providing assistance, together with the Baltic states themselves, have decided to upgrade BALTBAT to an infantry battalion with a capability for peace enforcement operations.

This upgrading will be included in BALTBAT’s 1998 programme of activities. This means that the battalion must be given more instruction and training as well as additional equipment. The contribution to be made by Norway, together with Denmark, will include training associated with the battalion’s mortar unit. We have also agreed to provide this unit with 10 mortars together with other relevant equipment. Norway has previously contributed a significant number of M 72 short-range anti-tank weapons in the context of the establishment of BALTBAT as a peace-keeping battalion. Including the value of the materiel donated, Norway’s contribution to BALTBAT since 1995 amounts to NOK 44.2 million.

The Joint Baltic Naval Squadron, BALTRON

In spring 1997, at the request of the Baltic countries, a number of western countries agreed to assist in the establishment of a joint Baltic naval squadron. The main purpose of BALTRON is to be mine clearance. The Baltic Squadron will be composed of existing units from the Baltic countries augmented by naval units from Germany. The contributions of the supporting countries will include various forms of instruction and training. Norway has undertaken to assume special responsibility for the training of ships’ divers. This training commenced in April at Haakonsvern in Bergen and was completed in June. BALTRON will become operational in August 1998. The Norwegian contribution to BALTRON has so far amounted to NOK 2 million out of the 1998 budget.

The Baltic Security Assistance Group, BALTSEA

As a consequence of the involvement of an increasing number of countries in the provision of defence related assistance to the Baltic states, including bilateral arrangements, it has become progressively more necessary for this assistance to be properly coordinated. To avoid unnecessary duplication and to ensure the best possible use of the resources available, an initiative was taken by Jørgen Kosmo, then Minister of Defence, to establish routines and procedures for such coordination. All those countries which were involved in the provision of defence related assistance were, together with the Baltic countries themselves, invited to a meeting at official level in Oslo in spring 1997 to discuss matters in more detail. At this meeting it was agreed that the Defence Ministries in each of the Baltic countries should set up and maintain databases to record and document all bilateral or multinational projects. Norway has undertaken to assist the Baltic countries with this task. The Norwegian Defence Communications and Data Services Administration is now in the process of developing and installing these databases. This work was due to be completed in June 1998. The Oslo meeting in spring 1997 has been followed by further meetings held in Stockholm, Copenhagen, Tallinn and Helsinki. These meeting have been accorded the status of a discussion and coordination forum, BALTSEA, in which the Baltic countries can present their requirements for defence related assistance and in which the initiation of any new projects can be discussed. BALTSEA also provides a forum for the discussion of long-term defence perspectives for the Baltic countries.

It is important that all countries providing such assistance in future should impress upon the Baltic states the need for them to assume progressively greater responsibility for the build-up of their own national defence organisations. The purpose of this is not to reduce the level of assistance given to the Baltic countries but to encourage these countries to define and prioritise their own defence related requirements within a realistic framework. From the Norwegian side the BALTSEA project has so far been allocated NOK 1.5 million out of the 1998 budget. This sum has been devoted to the establishment of databases.

The Baltic Defence College, BALTDEFCOL

Following on from an initiative taken in connection with the Nordic-Baltic Meeting of Defence Ministers in Estonia in June 1997, work is now in progress on the establishment of a joint Baltic staff college. According to current plans, the college will be set up in Tartu in Estonia with courses due to start in August 1999. The course duration will be ten and a half months and initially the instructors will be drawn mainly from the assisting countries. It is desirable that the assisting countries should also send officers of their own to the Baltic Defence College as students.

Initially only the Baltic and the Nordic countries are involved in the project but there has been an awakening of interest in other countries outside the immediate Nordic-Baltic area. Norway has in principle taken a very positive stance with regard to the setting up of BALTDEFCOL, especially since it will help to raise the standard of staff training given to more senior officers in the Baltic countries. We have at the same time argued for a certain degree of caution in the initial stages of this project. There has been talk of high investment costs associated with building work and infrastructure that are to be met by the host country Estonia. The teaching staff will, for the first few years, be provided largely by the assisting countries and it is desirable that these instructors should be appointed to the College on a permanent basis. It is also envisaged that the assisting countries, and more especially the Nordic countries, will cover a large part of the other running costs for this initial period. Norway is intending to contribute two instructors to BALTDEFCOL as well as covering part of the annual running costs.

The Baltic Air Surveillance Network, BALTNET

Work associated with the establishment of a regional air surveillance and coordination centre for the Baltic states commenced in spring 1997. Norway is the lead nation for this task and has particular responsibility for the development of the Baltic Air Surveillance Network (BALTNET). The purpose behind the establishment of BALTNET is to provide the Baltic states with the capability of exercising surveillance and control of their own air space in the context of both civil and military aviation.

Regional Air Surveillance Coordination Centre (RASCC)

Surveillance and control of a county’s own territory and border areas constitutes an important element of the exercise of national sovereignty. As an extension of their own Regional Airspace Initiative (RAI) directed towards their European partners, the United States authorities have carried out a Regional Airspace Study in Estonia, Latvia and Lithuania. This study was completed in September 1996. Against the background of this study it was concluded that it would be more cost-effective for the three Baltic countries to combine in setting up a single regional air surveillance and coordination centre rather than three separate national operations centres. In its 1998 budget, the US administration has, with the approval of Congress, allocated USD 10 million towards the cost of setting up the so-called Regional Air Surveillance Coordination Centre (RASCC).

RASCC is to be capable of receiving, integrating and distributing information covering the situation in the airspace over the three countries. The Centre will also serve as a nodal point for the exchange of information between the Baltic states and neighbouring countries. RASCC will be located in Lithuania with local nodes in the other two countries. The Centre is due to be completed before the end of 1999. The establishment of the coordination centre is in line with the aim of harmonising and coordinating security related activities in this region. The Centre, however, is not a purely military installation but is intended to cover both civil and military requirements for airspace surveillance. This solution will, moreover, not involve any curtailment of national sovereignty or command and control capability since these elements will be retained in the national operations centres.

Norwegian management

At the request of the United States and other countries concerned, Norway undertook to manage the continuation phase of this work including establishment of the necessary infrastructure and associated radar stations. The inaugural meeting of the BALTNET Steering Committee was held in Oslo on 11 April 1997. The Norwegian Chairmanship function is exercised by the Ministry of Defence. A Technical Sub-Group was also set up and this is led by Headquarters Defence Command Norway/Inspectorate of Air Control.

The greater part of the practical work is carried out through the Technical Sub-Group. An inventory has been worked out covering all materiel needed for the establishment of the Coordination Centre (radars, communications equipment, other infrastructure related materiel including instructional and training aids etc.) The three Baltic countries do not currently have installations or equipment of this kind, hence the need for contributions and assistance from other countries. Norway’s role is to manage and coordinate the work of putting all this in place.

Current contributions

Against the background of the economies of the Baltic countries and the need to strengthen their common capability in this field, one of the BALTNET Steering Group’s essential tasks is to arrange for the contribution of materiel by member countries. The United States has offered to provide a computer system for the gathering and analysis of radar information and Poland has donated surplus radar equipment which is now being installed in Lithuania. Estonia, Latvia and Lithuania are agreed that information from the composite air picture should be available to all three countries and that information should be exchanged between the civil and military aviation authorities. This means that older radars will need to be modernised in order to enable information to be exchanged over a communications system for subsequent data processing. It is in this field that Norway can make its main contribution to the project in terms of materiel provided.

Installation of the American computer system is planned for summer 1999. Before this can be put to use, it will be necessary to modernise some of the radar equipment and extend the communications network between the countries concerned. On Norway’s side, budget provision has been made for the expenditure of NOK 8.3 million as a contribution towards the modernisation of the two radars donated by Poland and the establishment of a separate communications network.

Bilateral contacts between Norway and the Baltic states

Norway has concluded framework agreements for defence related bilateral cooperation with each of the Baltic countries. The agreements postulate annual bilateral discussions at official level between the respective Defence Ministries. Mutual visits at ministerial level have taken place. The Lithuanian Deputy Defence Minister Jonas Kronkaitis made an informal working visit to Norway in June 1998. The visit included briefings at HQ Defence Command Norway.

In 1994 a patrol vessel was given to each of the Baltic countries. The vessels were supplied without weapons. In 1997 it was decided to make a gift of three 140 mm guns for fitting to each of these vessels. These were supplied to the Baltic countries at the beginning of May 1998.

It has been decided to establish an arrangement whereby a Norwegian Defence Attaché will be appointed to Latvia on a permanent basis with additional accreditation to Estonia and Lithuania. A Norwegian officer has been stationed with the Estonian General Staff since spring 1997.

In early 1997, representatives from the Baltic countries took part in a seminar in Norway on planning and budgeting organised by the Ministry of Defence. The aim is to run further such seminars. Collaboration on the development of personnel policy in the Armed Forces has been initiated with Estonia. The Norwegian Reserve Officers' Federation is running a project to assist the Baltic countries in establishing similar reserve officers' federations on democratic lines.

Exercises

Participation in PfP - or "In the Spirit of PfP" - exercises in the Baltic countries is another important aspect of defence related support and cooperation. Norway took part in Exercise "Baltic Challenge" in Latvia in summer 1996, in the corresponding exercise in Estonia in 1997 and will now take part in the 1998 "Baltic Challenge" to be held in Lithuania. In 1997 Norwegian participation was also a feature of Exercise "Cooperative Best Effort" held in Latvia and "US Baltops" conducted in the Baltic. In June this year we again took part in "US Baltops". It is in our interest that Norway should be represented in exercises in the Baltic area together with our allies including the United States, Denmark, Sweden and Finland.

The Baltic countries took part in the PfP exercise "Cooperative Banners" held in Sweden and Norway in May-June 1997. Norway subsidised participation by the Baltic countries to the extent of NOK 1 million. In late September/early October this year the Baltic countries will for the second time join with their Nordic neighbours and the humanitarian organisations in a peace operation exercise. This exercise, "Nordic Peace 98", will be held on the Swedish island of Gotland.

This page was last updated July 13 1998 by the editors