Building Integrity Tailored Programme for South Eastern Europe · Building Integrity Tailored...

Launch of the

Building Integrity Tailored Programme

for South Eastern Europe

Brussels 13 December 2012

Brochure on SEE_A5.indd 1 17/04/13 12:03

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Welcome address

Ambassador Dirk Brengelmann

NATO Assistant Secretary General for Political Affairs and Security Policy

Let me start by saying how pleased and honoured I am to welcome you to NATO HQ for the launch of the Tailored Building Integrity Programme for South Eastern Europe. I am especially pleased to be joined by Bulgaria, Norway and Italy in their capacity as Chair of the South Eastern Europe Defence Ministers (SEDM). NATO is a community of values, committed to the principles of democracy, human rights and the rule of law. This includes civil and democratic control of the armed forces that provide effective security and offer value for taxpayers. All the nations around this table are faced with the challenges of reforming, renewing and strengthening operational and institutional capabilities to meet the challenges that confront us in an increasingly interconnected world. The Building Integrity (BI) Programme was launched in 2007 as part of NATO’s commitment to defence institution building. Good practice knows no boundaries and from the outset the tools of the BI Programme have been used by partners and Allies to strengthen transparency, accountability and integrity. This tailored programme for South Eastern Europe brings together 16 NATO members and partner nations for the common purpose of building more effective institutions that serve the people. The economic climate makes tough choices even tougher. Building Integrity helps nations, by providing practical support in embedding good governance into our defence institutions and structures, and through building smart institutions in an age of austerity. While there are a number of initiatives to promote good governance in other sectors, NATO expertise and experience is unique and adds value to the UN led effort to support and promote good practice and reduce the risk of corruption. At the Chicago Summit, the Heads of State and Government highlighted the importance of strengthening transparency, accountability and integrity in the defence and security sectors; and emphasized that priority should be given to developing a tailored BI programme to support the nations in South Eastern Europe. This is what we have done. I am pleased to report that on 3rd October of this year, meeting in Sarajevo, South Eastern Defence Ministers (SEDM) endorsed the Building Integrity Programme in the framework of SEDM. This welcome step forward, and our meeting here today, which brings together representatives of SEDM and NATO delegations, underlines the close working relationship that has been established. I would like to pay tribute to all nations present for their support. I must make special mention of Bulgaria. The launch of the BI Programme within SEDM and the close cooperation established with the NATO staff is in large measure due to the personal support of the Deputy Minister. I am also very pleased to note that close cooperation continues under the current SEDM Chair held by Italy. SEDM has proven to be a successful model for mutual cooperation among states of the region and I am confident that it provides the right framework for a more structured and comprehensive approach to developing effective regional cooperation between nations and with civil society. The tailored programme would not be possible without the support of nations outside the region. Norway and Switzerland in particular, have made a significant investment providing


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financial and intellectual resources. The concept of the programme is simple: assess the current situation, identify gaps and promote good practice. The BI Self-Assessment and Peer Review Process, plays an important role in this effort. The Republic of Serbia is the latest to have completed the BI Self Assessment and Peer Review. I commend Serbia for this effort and the decision to post the Peer Review on the website of the Serbian Ministry of Defence. This is an unequivocal commitment to transparency and it brings the number of participating Allies and Partners to an equal level. The completed questionnaire has also been received from Kyiv this week and Montenegro is in the process of finalising their BI Self-assessment. I encourage all nations who have not already done so, to consider completing the BI Self Assessment as it provides nations with a useful snap shot of current practices and procedures. The results of the BI assessment, along with interviews to be conducted in capitals as part of the Norwegian led needs analysis, help us to build a better picture of the situation and to better focus our efforts to enhance institutional capacity. BI is demand driven, the activities and expert teams are composed as required, to meet the needs of nations. Its success relies on having access to subject matter experts and support provided by our implementing partners working in a community promoting good practice. Three of them are present today: the Peace Support Operations Training Center from Sarajevo, the Geneva Center for the Democratic Control of Armed Forces (DCAF) and Transparency International (defence and security programme of TI-UK). Finally let me say that we believe that programmes developed on a thorough analysis, with the active support of nations and in cooperation with our implementing partners set the basis for the best return on investment.

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Ambassador Todor Churov

Permanent Representative of Bulgaria

It is my pleasure to address this audience on a subject which is acquiring more and more attention by both the institutions and the public opinion in NATO nations and partnering countries. I find my task today relatively easy because we are privileged to have with us today Deputy Minister of Defence Mrs Avgustina Tsvetkova, who will present the vision of my country on building integrity in the defence and security sector in South Eastern Europe – a project where Bulgaria plays the leading role. Like other nations actively involved, and I can associate myself with what has been said by Assistant Secretary General Brengelmann and my colleague Ambassador Ellefsen, we consider the NATO Building Integrity Programme as part of NATO’s commitment to the strengthening of good governance in the defence and security sector. This programme is aimed at developing institutional capabilities in key areas such as management of financial and human resources, defence procurement, resource utilization and public-private partnership. Although this programme is generic in nature, we find extremely important its regional dimensions, in this case South Eastern Europe and the Western Balkans, in particular. I am sure that the dedication displayed by all countries which have decided to become involved with this project, will bring the results expected by those who are immediately concerned as well as the civil society in general.


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Ambassador Vegard Ellefsen

Permanent Representative of Norway

Norway is pleased to be one of the five lead nations in the NATO Building Integrity Programme. The aim of the initiative is to assist nations to develop good governance by promoting integrity and reducing the risk of corruption. We are particularly pleased with the efforts of NATO IS to advance the alliance’s commitment to this aim. The launching of the BI programme for South Eastern Europe is an important milestone for us. This programme is an important tool to develop good defence institutions, not only in non-NATO nations, but also in NATO nations. Eight nations have been invited to take part in the programme. For Norway’s part we will conduct a needs analysis this year and in 2013, which will identify factors that will assist us in designing future projects to address the identified risk factors. I am also pleased that we will cooperate closely with Bulgaria, who play an important role, and have anchored this programme in the South Eastern Europe Defence Ministerial (SEDM). Our cooperation with Transparency International UK, as probably the competent organisation within this field, is essential for us to reach a good result. Norway is a firm believer that the work in the field of integrity and transparency is fundamental and necessary. I can inform you that we have established the Centre for Building Integrity in the Defence Sector in Oslo. The centre will be a knowledge and competence centre and will focus on the development of good governance through building integrity, especially in terms of preventive anti-corruption efforts. The centre will be a resource for our national defence, but will also work closely with Allies in NATO, partner nations, and relevant national and international organisations. I trust that the Centre will be a contribution to further progress in this important field. With this, I want to wish you good luck and hope the programme will achieve the expected results. Thank you.

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Keynote Address

Deputy Minister of Defence of Bulgaria, Mrs Avgustina Tzvetkova

Building integrity and reducing the risk of corruption in the defence sector is a challenging and demanding task. First of all, the defence sector is highly prone to corruption due to its capital-intensive investment nature. It would not be an exaggeration to state that no country would be immune to corruption in the defence sector. And we have to implement adequate policies and solid mechanisms in place to eliminate the risk of corruption. Moreover, there is need to overcome the fear of talking about corruption, which can be observed as a prevailing tendency among some politicians. Such attitude can only prevent taking adequate measures to address the risk of corruption. It is important to understand that building integrity is about introducing policies and practices to ensure accountability and transparency. In Bulgaria, we have learned that corruption leads to the loss of public trust and also undermines the authority of state institutions and the international image of a country. In this respect, I want to focus on the anti-corruption strategies in the defence sector pursued by Bulgaria over the last 3 and a half years. Let me start by highlighting my strong conviction that the overarching objective in this area should be the creation of an overall strategic environment. This provides guarantees that corruption will be eliminated at the present moment and most importantly, that the risk of subsequently generating corruption in the future will be reduced to a minimum. At the Ministry of Defence of Bulgaria, we have come to realize that three components guarantee a successful anti-corruption reform. These are, i) political will, ii) a clear strategy for its practical application, and iii) objective external evaluation to act as a corrective when necessary, by comparing the chosen direction with the prerequisites to building integrity. Political will is probably the most important precondition for the success of all efforts in Building Integrity in order to introduce the right legal, normative and procedural framework for the implementation of anti-corruption strategies. In 2009, the Ministry of Defence of Bulgaria set up a Standing Committee on Anti-corruption as a first step to fight against ineligible practices. The leaders of all structures in the Ministry of Defence and the Armed Forces are members of the committee and have the task to develop the fundamental legal documents necessary to deal with corrupt practices. Mainly political will and a clear strategy are needed in order to introduce the right legal, normative and procedural framework for the implementation of anti-corruption strategies. In 2010, the National Assembly adopted the White Paper on Defence and Armed Forces of the Republic of Bulgaria. Fighting corruption is embedded as a fundamental principle in the White Paper, while transparency is spelled out as a key pillar of the new management philosophy of the Ministry. The White Paper has been followed by the Plan for the Development of the Armed Forces and a Long Term Investment Plan. These documents provide a solid basis and a clear strategic vision of how to manage and balance resources focusing on capabilities development and limiting the space for corruption. In addition, an ethical Code of Conduct has been developed and put into practice for the military and civilian staff of the integrated Ministry and the structures directly subordinated to the Minister of Defence and the Bulgarian Armed Forces.


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However, I have to emphasize that introducing new policies and practices is not an easy task. First of all, national administrations are resistant to changes and reforms are generally challenged, primarily by the middle-management level. Introducing a new Code of Conduct cannot transform old mentality overnight. Therefore, as a first step, we have to overcome the impediments remaining as a result of old thinking and unwillingness to change the system. New rules and regulations have to be underpinned by a new mindset. For instance, in Bulgaria, as a result of old thinking and resistance to change, some areas still remain critical. Building a lasting, strong and effective system to counteract corruption also requires a realistic and professional assessment of the specific situation. The analysis of the prevailing context in a country provides the basis for recommendations for policies to address shortfalls and to correct deficiencies. With this understanding, in 2010 the Bulgarian Ministry of Defence completed the Self-assessment Questionnaire of the "Building Integrity Programme” and was subsequently subject to a Peer Review conducted by a team of NATO and Transparency International’s UK representatives. The final report, with all findings, was published on the Ministry’s website. Based on the results of the Peer Review, the joint team provided recommendations, which have been incorporated into the Action Plan of the Ministry of Defence, listing concrete practical steps to apply anti-corruption policies. Procurement and supply has been identified as the most corruption-prone area in the defence sector. Guided by the given recommendations, first of all we improved the transparency and employed procedures that reduce the risk of corruption. Also we created Integrity Pacts in public procurement. Through the Integrity Pact, the Ministry of Defence undertakes the commitment not to admit any malpractice and abuse of position-in-office for personal gain in performing the procedures. The Pact is signed by the Minister of Defence and becomes an integral part of the documentation on conducting public procurement and tenders. The Pact is a document of moral engagement and is part of the process of trust building between the state administration and the representatives of business. We are also taking every measure to strengthen public control of transactions and the sales of items and excess property. The leadership of the Ministry of Defence is fully aware of the risks in this area and does not hesitate to address the problem. An example in this direction, is the Minister’s decision to cease the utilisation of surplus-ammo competition, after it had emerged that only one company met the specified conditions and that competition was thus practically jeopardized. This gave a clear signal to the public, to businesses and to employees of the Ministry of Defence that the processes are under strict scrutiny. Another corruption-prone area is that of human resources in defence. We received valuable advice from the NATO joint assessment team on the selection of personnel holding key positions exposed to risk of malpractice where the very act of admitting conflict of interest shall discredit the processes. The Standing Council on Anti-corruption made a decision, which was incorporated into the Action Plan, to introduce a system for identifying the sensitive positions in the Ministry of Defence with a view to the corruption risk, and to form commissions on conducting public procurement after the deadline for submitting the bids. Also, special attention is paid to the explanatory processes and specialized training of civilian and military officials in anti-corruption. Such training is already initiated by the Directorate of Internal Audit and the Inspectorate of the Ministry of Defence and became an integral part of the curricula of the Military Academy.

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Enhancing the transparency of the decision-making processes is an important weapon against hidden practices related to abuse of position-in-office for personal gain. All activities of the present leadership of the Ministry of Defence are conducted under complete public scrutiny and this practice has considerably contributed to improving the relations of the political leadership with the needs and expectations of the public. Thus we conveyed a message to society that we are firmly committed to protect the public interest in the defence sector. The basic means we used in this respect, were the introduction of systematic accountability and responsibility for the activities undertaken and the results achieved. I think that the core of the fight against corruption, is the so called "T3" policy based upon three most important measures that have to be put in place. First one is transparency, the second is transparency and the most crucial third is transparency. Reforms aimed at modernizing a country’s Armed Forces and its security and defence sector as a whole, cannot succeed unless there are targeted and results-oriented efforts to eradicate and abolish any existing practices that may generate corruption. We have to implement policies and practices that guarantee transparency and accountability. Otherwise, reforms will be compromised and will fail to produce any practical improvement and progress. Therefore, building integrity on the basis of structured counter-corruption strategies, should become an integral part of reforms in the defence sector and a measure of their success. While such strategies are context-specific and demand that each country to establish its own priorities and to match objectives with adequate policies and resources, they can also have wide application. We can learn a lot from sharing best practices and by identifying the right tools to fight corruption. We have to convince the leaderships in defence of allies and partner countries, to recognize the importance of the project. I trust that the Building Integrity Programme for South Eastern Europe will serve as a framework to identify needs and shortfalls that require targeted action. The expertise developed by NATO is extremely valuable and now that we are embarking on the implementation this project, in close collaboration between SEDM and NATO, it is my firm belief that it will contribute substantially to building integrity in the defence sector of the countries of South Eastern Europe.


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Ambassador Bénédict de Cerjat Head of Mission of Switzerland

I am very pleased to participate in the launch of NATO’s tailored Building Integrity Programme for South Eastern Europe. First, I would like to thank Ambassador Brengelmann and the entire BI team for hosting this event at NATO Headquarters. It will help to raise the visibility of this important programme. It also gives a good start for our common efforts to improve the management of the defence institutions in the countries of the region. The proposal to establish a tailored programme for South Eastern Europe (SEE) was raised in 2010 and at the Chicago Summit in 2012 it was re-emphasized. For our part, we are completely satisfied with the progress that has been made and the actions carried out so far. In particular, I should like to thank Norway for its very active involvement, which has led to several research and evaluation projects for the analysis of future needs, and Bulgaria for its leadership and unfailing support. My thanks to Deputy Minister Tzvetkova for her strong commitment to enhance transparency within the Bulgarian Ministry of Defence. The specific measures undertaken, which she has just described to us without concealing the problems arising on the road to transparency, are to be welcomed. The Building Integrity Programme which has been set up for South Eastern Europe is very important for Switzerland: First, as one of the co-leading nations for the trust fund, with Belgium, Norway, Poland and the United Kingdom, we attach a great deal of importance to this Programme, and have done so since its inception. As Ambassador Brengelmann said, fighting corruption helps to reinforce defence and security institutions, and also to guarantee stability and security. Secondly, the countries of South Eastern Europe constitute a priority region for Swiss foreign policy. Given the close personal links between us – nearly 400,000 natives of the region live in our country – Switzerland has a great interest in the maintenance of peace, stability and prosperity in these countries. We therefore very much want to pursue this programme and ensure its success. This is why we are seconding Mr Olivier Desarzens for the second year running for the implementation of this programme. And this is also why the Geneva Centre for the Democratic Control of Armed Forces – DCAF – is so heavily involved. Its experience in the area of security sector reform will be an effective contribution in support of the efforts of the South Eastern European countries engaged in this process. We hope that this launch at the HQ will help us to achieve our common objective, which is that defence institutions everywhere should be strong, effective, and resistant to corruption! Finally, following up on the clear statement by Minister Tzvetkova in favour of the 3 Ts (“1. Transparency, 2. Transparency, 3. Transparency”), I would like to propose another 3 Ts for our work: “Together Towards Transparency!”

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Ambassador Riccardo Sessa

Permanent Representative of Italy on behalf of the SEDM Chair

It is indeed an honour and a pleasure for me to participate in the launch of NATO’s tailored Building Integrity Programme for South Eastern Europe developed by the International Staff in close cooperation with the South Eastern Europe Defence Ministers Process and individual nations. I would also like to pay tribute to the role played by Bulgaria and Norway in this process. The Building Integrity programme was launched in the Euro-Atlantic Partnership Council (EAPC) framework in 2007. In these five years, the programme has achieved many important results and has highlighted the importance of strengthening transparency, accountability and integrity in the defence and security sector as noted by NATO Heads of State and Government in Chicago this year. In Afghanistan, it has brought about significant results and changes in the Defence and Security Sector. Today’s ceremony is a testament to the importance that NATO attaches to the South Eastern European region, but also to the importance that countries in the region attach, to stronger cooperation and involvement with NATO. Furthermore, it underlines what we all strongly believe: that the security of NATO countries is deeply rooted in the security and stability of the Balkans. In this regard, the active role of the Peace Support Operation Training Centre is a significant example of the commitment of countries in the region. The latter is essential, if we want to ensure that the countries in the region join, like some of them have already done, the European and Euro-Atlantic families. These two processes, while distinct, are mutually beneficial and reinforcing. In this context, a positive performance in Defence and Security reform, driven also by the Building Integrity process, can only benefit and facilitate the process of further integration. NATO and its Allies will continue to encourage countries in the region towards that end. The Alliance’s commitment in the strategically important Balkan region will not fade and will only benefit from a continued and strong engagement and ownership of the reform process from countries in the region. The Building Integrity programme is a clear demonstration of ownership and determination that can only help the continued cooperation of NATO. I therefore once again welcome the launch of the tailored programme and I wish you all the best in the continuation of your work today and tomorrow, confident that your decisions will benefit the future of your countries and of your armed forces.


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Final remarks by the Chair

Dr. Alberto Bin

Director, Integration, Partnerships and Cooperation Directorate Political Affair and Security Policy Division, NATO HQ

Let me highlight three important elements resulting from our meeting, which aimed at formally launching the implementation of the Tailored Programme for South Eastern Europe (SEE) in the context of the South Eastern Europe Defence Ministerial (SEDM). Firstly, it shows that nations and NATO IS have already taken the first concrete steps to implement the Chicago Summit’s tasks, regardless of constraints in personnel and finances. The driving force is our common understanding that Building Integrity helps nations, it provides practical support to embed good governance into our defence institutions and structures, and building smart institutions in an age of austerity. Secondly, that we have identified a number of principles for our common way ahead: avoiding duplication; sharing information and experiences to approach the challenges of defence-related corruption; and change management. Finally, we are pleased to also have very operational results: I would like to thank DCAF for supporting us in compiling and editing the proceedings of this meeting. We are working closely with DCAF, one of our implementing partners, to develop three workshops on professional Development for Building Integrity in South Eastern Europe’s Defence Establishments. We are very grateful to Bulgaria, Bosnia and Herzegovina as well Serbia to host these three workshops. I look forward to meeting you in Sarajevo (19-22 March 2013), in Sofia (22-25 April 2013) and in Belgrade (17-20 June 2013)!

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The Building Integrity Tailored Programme for South Eastern Europe Background The proposal to establish a tailored programme for South Eastern Europe (SEE) within the EAPC was discussed informally at the 2009 BI Conference in Monterey. An initial outline was presented to the Building Integrity Steering Committee in Brunssum on 29 in September 2011 and developed with the support of personnel provided to NATO-IS by Switzerland. These efforts are supported by voluntary contributions led by Belgium, Bulgaria, Norway, Poland, Switzerland and the United Kingdom. This NATO led effort has been strengthened by national efforts. In 2011, Bulgaria introduced a Building Integrity Initiative in the framework of the South Eastern Defence Ministerial (SEDM) Process. The BI report, noted by the Head of State and Government at the Chicago Summit in 2012, highlighted the importance of strengthening transparency, accountability and integrity in the defence and security sector and emphasized that priority should be given to developing a tailored BI programme to support the nations in SEE. On 13 December 2012, the BI Tailored Programme for SEE was officially launched at NATO HQ. Nations stressed the need to: • Make good use of resources of the region; • Promote synergy with existing efforts so as to avoid duplication; and • Develop a “community of practice” to promote understanding of the corruption risk in SEE and embed good practice into national policy and procedures. Outline of the tailored programme The aim of the BI tailored programme for SEE is to contribute towards reducing the risk of corruption in the defence and security sector of the participating nations by promoting good practices, strengthening transparency, accountability and integrity. Achieving this objective is based on the sustained long term effort by the international community and is complementary to the ongoing efforts on reducing the risk of corruption supported by other international organisations and by bilateral efforts. The NATO led effort draws on existing NATO and partnership tools and mechanisms including the BI Self Assessment and Peer Review Process. The development of a systematic, in-depth country-specific analysis of risks of corruption in the defence and security sector is a significant step forward in developing a holistic picture of current needs and capabilities of the defence and security sector of SEE. Therefore, a need analysis, to be completed by Norway in 2013, will identify normative standards, gaps and potential measures to address them. To underline the systematic approach of this study, assessment guidelines are being developed under the leadership of the Norwegian Agency for Public Management and eGovernment in close cooperation with the NATO-International Staff (IS). These guidelines will be used in the implementation of the needs analyses as well as conduct of BI Self Assessment and Peer Review. The assessment guidelines will also be used to set benchmarks and development of measures of performance. The needs analysis will result in 8 country specific reports as well as an overall cross-country report for SEE. The reports will provide a framework to develop tailored advice to strengthen the capability of individual countries and the region.


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To avoid duplication and to make use of the synergies, an ad hoc team, composed by Norway, Bulgaria and NATO-IS is coordinating the needs analysis as a whole and the work of the Norwegian Agency for Public Management and eGovernment - DIFI, the Geneva Center for the Democratic Control of the Armed Forces (DCAF) and Transparency International UK Defence. Special attention is paid to the coordination between the needs analysis and the Professional Development activities. The BI tailored programme will be kept under ongoing review and adjusted to meet the changing circumstances and capabilities of the individual countries. A formal review and stocktaking will be conducted on an annual basis with key stakeholders. Expected outcome The BI Tailored Programme for SEE is expected to: • Improve nations understanding of the risks of corruption in the defence and security sector; • Identify priorities and formulate a road ahead for common action; • Provide advice on the application of institutional practices and procedures • aim at strengthening transparency, accountability and integrity in the defence and security sector; • Develop benchmarks so that nations can monitor change; • Provide education and training to promote good practice and build capacity; and • Promote wider use of existing BI NATO tools and mechanisms and how they can be used to strengthen transparency, accountability and integrity in the defence and security sector. Next steps for SEE The results of the BI Self Assessment and Peer Review along with the conclusions from the need analysis will be used as the basis for the design and implementation of the BI Tailored Programme for SEE. In 2013, efforts are expected to focus on promoting good practice and developing professional capabilities tailored to meet the needs of SEE for resource management. NATO Point of Contact: Dr. Olivier F. Desarzens BI Tailored Programme for South Eastern Europe Policy & Programmes Team Political Affairs and Security Policy Division NATO HQ Brussels Tel: +32.2.707.4665 Email: [email protected]


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