SUMMARY

Introduction

The Government report "The European Security Development and Finnish Defence", submitted to Parliament in 1997, outlined developments in the European security environment and their impact on Finland. It went on to define the principles for developing Finland's defence up to 2008 on the basis of an assessment of the international situation and as part of Finland's overall security policy. The report proposed that the structural changes in Finland's defence system should be reviewed at intervals, the first review planned for 2001, and that a comprehensive report on the long-term plans for Finland's defence system should be made no later than 2005.

The Parliamentary Defence and Finance Committees submitted their comments on the report to the Foreign Affairs Committee. Parliament subsequently approved the Foreign Affairs Committee's report, augmented with supplementary statements on Defence Forces' personnel and garrisons having lost conscript training.

An important change in the preparation of security and defence policy occurred when the Defence Council was abolished on March 1, 2000. The Council's duties were reallocated to the Government Committee on Foreign and Security Policy and the Ministry of Defence. The former was made responsible for important matters concerning total national defence and coordination of these matters, while the Ministry of Defence was given the new responsibility of coordinating the actions of different branches of government in matters of total national defence. A new Security and Defence Committee was set up at the same time, with the task of assisting the Ministry of Defence and the Government Committee on Foreign and Security Policy in these matters. The new committee was also given the task of coordinating the preparation of the 2001 report.

The long-term development of Finland's security policy and defence recommended in the 1997 report require that preparation of the following comprehensive report be brought forward to 2004. The report will also assess the defence system as a whole in the light of developments in the security environment and society in general.

The security environment and Finland's policy

In the international environment, the democratic reforms and stabilization in Europe following the end of the Cold War are continuing, with the European Union playing a key role. By acquiring new means for crisis management, the EU will increase its influence not only as a political and economic force but also as an actor in the field of security policy. At the same time, the EU will be developing its capacity to prevent security problems from arising and to strengthen security in a broad sense. Enlargement of the Union will significantly improve the prospects for wellbeing and security beyond the present EU boundaries and will be a key means of achieving stability and unification in Europe.

The importance of cooperation between the EU and Russia for the future of Europe is continually growing. As a result of the EU's common security and defence policy, its relations with the United States will acquire more substance in the field of security policy. Security in the Baltic Sea region will improve as a result of regional cooperation and the overall changes occurring within Europe. This will be shaped by the enlargement of the EU and of NATO and developments in relations between Russia and the Baltic States.

The changes in European security put in motion after the end of the Cold War are both profound and lasting. The threat of a large-scale military conflict in Europe will remain low.

New regional and local conflicts and humanitarian crises may occur within Europe and outside it. International interdependence and globalization have increased the vulnerability of countries to new kinds of transboundary risks and threats.

Despite the positive overall development in Europe and outside it, there still exist a number of uncertainties affecting the security of Finland and its citizens. These must be taken into consideration in developing the country's security and defence policy. Finland must be able to guarantee the effectiveness of its foreign and security policy and retain a credible defence capability in order to safeguard the country's political independence and territorial integrity.

The basic components of Finland's security and defence policy can be summarized as follows:
1. Maintenance and development of a credible defence capability.
2. Remaining militarily non-allied under the prevailing conditions.
3. Participation in international cooperation to strengthen security and stability.

Finland's capability to participate in security cooperation will be further developed in view of contributing in international crisis management in line with the principles adopted by the United Nations and the Organization for Security and Cooperation in Europe (OSCE), both within the EU and the NATO Partnership for Peace programme, and through Nordic cooperation. This will also serve to improve Finland's ability to manage crises or threats affecting its own territory.

Finland's defence capability must be tailored to secure the country's territorial integrity, its independence and the livelihood of its citizens. The entire territory of the country will be defended when necessary. Creation of capabilities for receiving assistance in a crisis situation is taken into consideration in developing Finland's defence.

European and international security requires not only cooperation to prevent wars and armed conflicts but also efforts to combat international political, economic, ecological and information system threats. Finland is improving its ability to deal with such security risks, especially international crime and environmental and health risks, as well as the risks of disasters, including problems of nuclear safety. Finland is also seeking more effective means to manage the effects of globalization and non-military security risks. Information gathering and analysis concerning globalization issues are being further developed. To manage the new security challenges, the activities of the different branches of government and their coordination will be made more effective and will be based on common views subject to regular revision. Cooperation will also be strengthened with the business sector, research and educational institutions and non-governmental organizations.

The importance of information as a production factor is increasing and has already become a major component within the economy and society at large. Threats affecting information systems which are spread via networks are on the increase worldwide. Criminal or otherwise malicious tampering with information networks is almost a daily event, even in normal circumstances; it is not simply a threat that arises in times of exceptional circumstances. Cooperation between different authorities to combat these threats will be improved by establishing a special organization within the Telecommunications Administration Centre.

Finland will continue to allocate resources to the work of the United Nations and to support the role of the UN in resolving international security problems.

The importance of the European Union in relation to Finland's security interests and goals has continued to increase. A strong Union based on solidarity will enhance security, prevent crises from emerging and improve Finland's ability to cope with such situations should they arise. An improvement in the EU's ability to take action will remain a fundamental principle of Finland's policy on Europe. As an EU member, Finland seeks to promote stable development and security in its adjacent areas and elsewhere in Europe. Finland supports the enlargement of the EU, which it believes is of central importance to stability and security in Europe. Implementation of the EU's common policy on the Northern Dimension will provide a long-term approach for promoting sustainable security.

The field operations of the OSCE for preventing and managing crises are a valuable contribution to improving European security. Finland continues to contribute resources for this work.

The work undertaken by the Council of Europe is important for promoting democracy, human rights and the rule of law.

Finland is actively engaged in cooperation in the Baltic Sea, Barents Sea and Arctic regions and seeks to promote projects of national importance.

Finland is committed to the development of the European Union's crisis management capability and considers close cooperation between the EU and NATO as an important basis for this work. Finland is continuing its Partnership for Peace cooperation with NATO and is developing its crisis management capacity within the framework of the Planning and Review Process (PARP).

The Treaty on Conventional Armed Forces in Europe (the CFE Treaty) is one of the cornerstones of European security and stability. On the basis of current assessments, Finland does not consider it necessary or possible to accede to the Treaty, but will closely study the implementation and effects of the adapted CFE Treaty.

Finland is taking an active role in international action to prevent the proliferation of weapons of mass destruction and to minimize the threat they pose. Finland is also involved in work to limit the spread of small arms and light weapons.

Finland supports an effective and worldwide ban on anti-personnel landmines and is participating in the EU's activities to promote the global implementation of the aims of the Ottawa Convention. Finland is continuing its investigations with the aim that it would sign the Convention in 2006, and destroy its anti-personnel land mines by the end of 2010, without compromising the country's credible defence capability. An interim report on the matter will be drafted before the end of 2003. The question of signing the Convention and drawing up a substitution programme for the anti-personnel land mines will be presented in the context of the entire Finnish defence system in the report to be drafted in 2004.

Developing Finland's defence

The goal of Finland's defence is to guarantee the country's independence, secure the livelihood of its citizens, prevent Finnish territory from being seized and secure the functioning of the state leadership.

Territorial defence system and general conscription will remain key principles of Finland's defence system. The proportion of eligible males undertaking military service is expected to remain at about 80% in the future, too. Refresher courses are an essential element in maintaining the defence system. Preparations are made with a view of defending the entire country.

The measures implemented in 1997-2000 as part of the programme of structural change in the Defence Forces have established a sound basis for improved efficiency in line with the requirements set. The most important measures have concerned rationalizing the training organization, changes to the conscription service period in order to meet the demands of the training system, and operational planning. The programme to reduce the strength of Defence Forces wartime troops has also begun. The international activities of the Defence Forces have been more extensive and have grown more rapidly than anticipated. The emphasis in these activities has been on developing European crisis management capability.

To maintain and develop a credible defence capability, funding should be planned with a view to the longer term. The maintenance of the defence capacity cannot follow the fluctuations of economic cycles; instead, it is necessary to review the situation primarily against the long-term development of the security environment and on the basis of Finland's security policy objectives. The defence development programme presented in this report requires FIM 10.2 billion (thousand million) funding for defence in 2002, FIM 10.4 billion in 2003 and FIM 10.6 billion in 2004. The average funding in the period 2003-2008 would be a maximum of FIM 10.8 billion per year. Materiel procurement accounts for about one third the appropriations.

The resources for developing the defence system are to go primarily towards achieving the capability to prevent and repel a strategic strike. The ability to prevent and repel a large-scale attack will be maintained in line with developments in the security environment. The emphasis in the defence development programme in the present decade is in developing the Army. Advance work on improvements to defence capacity for the period 2010-2020 will begin during the present planning period. The developments occurring in armed forces which affect Finland's security environment will require Finland to invest in new defence technologies.

In developing Finland's defence system, priority will be given to the command and control system, the Army's readiness formations, military crisis management capacity and the wartime economy arrangements in an information society. The reductions in the Defence Forces wartime strength will be continued, reducing the maximum strength to 350,000 men by the end of 2008.

The reliability and compatibility of the Defence Forces command system will be further developed, taking into account the needs of cooperation at both the national and international level.

The main area of development in the Army will be the upgrading of three Jaeger brigades to readiness brigades. Extensive studies on the alternatives available will be required as a basis for decisions on the most effective weapons systems for the Army in the next decade. The study must provide the necessary information for making policy recommendations in the report to be presented in 2004.

A decision on wartime armoured brigades will be made on the basis of a study on the firepower and mobility of the Army's operational formations and supporting forces. Wartime armoured forces will be maintained in accordance with the lifespan of their equipment. The readiness of forces based in the Helsinki region will be improved

The Army's other wartime forces will be reviewed as a whole, taking into consideration the development of the territorial defence system in 2010-2020.

The emphasis in developing the Navy's equipment is on replacing the most important vessels and improving the mobility of coastal defence.

In development of the Air Force's equipment, priority is being given to improving the operation of interceptors and maintaining their performance.

Finland's military crisis management capacity will be developed to meet the crisis management objectives of Europe and the UN. Development of the troops and systems of the Finnish Defence Forces for crisis management purposes will also be of benefit to national defence.

The wartime economy arrangements of the Defence Forces will be brought up to date to reflect the general practices in the information society and in trade and industry.

Organizational development in the Defence Forces will be continued by further implementation of the structural changes outlined in the 1997 security and defence policy report. The changes will be based on the anticipated needs in a war or crisis situation. Centralization of activities in the Defence Forces training organization will be continued and training facilities for the readiness formations will be improved. Locations considered inappropriate for command, training and readiness tasks will be relinquished. To maintain the performance of forces required to repel a strategic strike, the number of reservists undergoing refresher training annually will be raised to 35,000.

Development of the personnel system aims at balancing human resources to fit the demands of tasks in the defence administration, areas of competence to be further developed and the organizational changes under way.

In 2002-2004 a study will be undertaken of the defence system needs for the period 2010-2020. A revised territorial defence system will be presented in the report on security and defence policy to be submitted in 2004. The report will assess the entire defence system in the light of developments in the security environment and society in general.

Defence Forces cooperation with different authorities is based on statutory obligations and on separate agreements with the authorities concerned, as well as other practical arrangements.

No changes are considered necessary in the basic military defence arrangements of the Frontier Guard. The Frontier Guard and the Defence Forces have an agreement on cooperation concerning territorial surveillance, defence planning, military training, and operational and resource planning. More demanding defence duties are being planned for the Frontier and Coast Guard forces.

Under the Rescue Services Act, the Defence Forces are obliged to participate in rescue services activities by providing equipment, human resources and special expertise needed in rescue operations, where this is necessary due to the scope or special nature of the accident. Participation in rescue services work must not be allowed to affect the performance of defence duties undertaken by the Defence Forces.

International crisis management

The international community has put considerable effort into developing its capacity to engage in military and civilian crisis management, on the basis of experience gained in crises during the 1990s. More decisive efforts are needed to improve conflict prevention. Finland is actively participating in crisis management cooperation and is thus reinforcing both international security and its own security.

Finland is also developing its own defence capability, making use of the experience gained in peacekeeping and crisis management within international organizations. Due regard is paid to Finland's international obligations in the EU, the UN and the OSCE, and its participation in the NATO Partnership for Peace programme.

The various means available for crisis management cover both military and civilian tasks. In international crisis management Finland mainly uses the resources which are reserved for its own national duties. The ability to make preparations, take decisions and implement actions rapidly, essential for crisis management, will be further enhanced. Decision-making procedures will be further developed, particularly with a view to the EU's crisis management activities.

Finland can participate in military crisis management operations implemented by the UN, the OSCE, the EU or NATO, provided these operations are under UN or OSCE mandate consistent with the provisions of the Finnish Act on Peace Support Operations 2,000. Under the Act, Finland may have no more than 2,000 peacekeepers in operations at any one time. Finland is currently participating in ten different operations with a total of about 1,600 personnel. The Ministry for Foreign Affairs and the Ministry of Defence are responsible for military crisis management preparations, guidance and supervision. The Defence Forces are responsible for practical implementation.

Participation in UN peacekeeping duties will continue to be important in the future. Finland supports efforts to improve the effectiveness of the UN's crisis management operations.

Finland is participating in setting up the EU's military crisis management capacity and has offered a rapid deployment force for use by the EU in international crisis management. The total strength of the force offered is 1,500 soldiers. In establishing its rapid deployment capability, Finland has taken into account the EU's declared aim of achieving by 2003 the military crisis management capability, which was decided in 1999 at the Helsinki European Council. Finland is also involved in the development of the EU Member States' collective capabilities. The required readiness will demand additional resources.

Finland considers it important to participate in NATO-led crisis management operations in the future, too. Finland is seeking closer cooperation with NATO and its member countries in operations planning undertaken within NATO and in related decision-making in cases where Finland is to despatch troops to NATO-led operations. Traditional UN peacekeeper training and training under the Partnership for Peace programme will be combined.

The capability of Finland's rapid deployment force will be maintained and developed. The force includes two infantry battalions, an engineer battalion, a transport company and a CIMIC company (civil-military cooperation). The force also has two Navy minelayers as well as staff officers and military observers. At present, the force does not include any Air Force units, but the potential for Air Force participation in crisis management operations in the future is being investigated.

The aim is to extend the operational readiness of the force from the company and battalion level to the brigade level as well, with the objective of creating a joint Nordic capability for leading an international crisis management brigade.

Finland is developing its civilian crisis management capacity on the basis of its national approach and is prepared to establish the capacity required particularly for developing the EU's civilian crisis management capability. Preparations for international civilian crisis management support and those made for disruptive situations and exceptional circumstances at home support each other. The personnel and materiel for each of these activities is largely the same.

In 1997 the Government submitted a report to Parliament on developing civil resources for crisis management, on the basis of which a permanent body was set up for inter-ministerial cooperation led by the Ministry for Foreign Affairs.

Coordination and preparatory work for decision-making on civilian crisis management are the responsibility of the Ministry for Foreign Affairs and Ministry of the Interior. The Ministry for Foreign Affairs is responsible for coordinating civilian crisis management cooperation with the EU and international organizations. The Ministry of the Interior is responsible for coordinating Finland's national civilian crisis management capacity. The legal status of personnel participating in civilian crisis management will be clarified.

Finland is playing an active role in developing the civilian crisis management capacity of the EU. Finland is also developing its national capability in line with the EU's objectives, especially in four priority areas: police, strengthening the rule of law, and civil administration and civil protection.

Preparations are being made to raise the number of Finnish police available for international duties to between 60 and 70. The Frontier Guard is participating in measures to improve border control, both independently and as part of police operations.

To strengthen the rule of law in crisis-afflicted areas Finland is prepared to despatch experts to assist in developing the independence of the courts and of their activities and in the selection and training of judges and prosecutors, and to deal with accessibility to the law, legal procedures and enforcement of sentences. In conjunction with the Ministry for Foreign Affairs, the Ministry of Justice is organizing introductory training, the aim of which is that Finland should be able, if necessary, to despatch up to ten highly qualified legal administration experts simultaneously to civilian crisis duties.

Finland is prepared to provide assistance for other work to strengthen civil administration, above all in post-crisis planning and the start-up of regional and local administrative systems and related assistance, and in providing information technology expertise for setting up a population register system and basic registers.

The rescue services administration uses specially trained rescue personnel for its international activities. At full strength this means a total of about 200 rescue services professionals and other experts.

Precautionary measures and combating threats affecting society

Membership of the European Union and the general increase in international interaction have improved the level of crisis tolerance in Finnish society. At Finland's initiative, the Nice European Council decided to request the European Commission to undertake a fundamental review of the EU's security of supply, together with the Council secretariat, and to determine the scope for cooperation in this area.

At the national level it is still necessary to ensure the ability of society to function in all circumstances, thus securing both official functions and those of individual citizens and businesses. Finland's need to ensure security of supply is supported by the International Energy Programme (IEP) agreement and various bilateral arrangements.

Finland's system of precautionary measures is designed to safeguard the livelihood of the population and the country's economy, to maintain the legal system and to secure the territorial integrity and independence of the country. The precautionary measures cover both military and civilian measures, and concern both disruptive situations under normal conditions and times of exceptional circumstances. To ensure a level of crisis tolerance within society it is essential that precautionary measures are based on extensive cooperation as the activities in different sectors of society become more interdependent. Precautionary measures also link voluntary organizations and their services more closely than before to actions by the authorities, and at the same time take into account the growing international dimension. The system of precautionary measures has proved to operate well and to be appropriate.

The Government is to launch a major project to draw up a national strategy for precautionary measures, covering the principles and guidelines for precautionary measures taken in society. This will be the task of the Security and Defence Committee. The work will include definition of the areas vital to the functioning of society and drafting of necessary development plans. The strategy will be updated regularly and its main outlines incorporated in the next report on security and defence policy.

In internal security, the police are actively participating in international cooperation in the fight against crime. Nordic cooperation is progressing and similar cooperation with the countries around the Baltic Sea has begun. Cooperation between the EU's internal and legal authorities is also being enhanced.

During exceptional circumstances the population will be protected in civil defence shelters and other structures offering protection, or with the aid of evacuation measures. An investigation of the need for civil defence shelters and the obligation to build shelters will be carried out under the Ministry of the Interior. The capability to conduct rapid evacuation must be retained in all parts of the country.

To maintain internal security, Finland must be able to carry out credible border control in a manner that fulfils the EU requirements. Illegal immigration routes leading to Central Europe are becoming more difficult to use as the border controls of the Baltic States and countries of eastern Central Europe are improved. As a consequence, the risk of illegal immigration to Finland is growing. The threat is growing by Russia's plans to transfer border control resources to the southern parts of the federation, at the expense of other borders, such as that with Finland. Preparations must be made for dealing with large-scale illegal immigration in the future as well.

Maritime transport of oil products along the Gulf of Finland is growing, as is the transport of passengers across the same waters. This increases the risk of a major disaster. Together with the authorities of states bordering the Gulf of Finland, but also with those of all the Baltic Sea countries, Finland is seeking to develop arrangements which promote the safety of traffic in the Baltic Sea.

The Ministry of Finance has prepared a proposal to amend the Emergency Powers Act. The amendment would conform with the needs and requirements of Economic and Monetary Union and changes in the financial markets.

The 1995 Government decision on the aims for insuring security of supply will be revised.