Key Elements of the Bundeswehr of the Future

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Key Elements of the Bundeswehr of the Future

Content I. The security environment 7 II. Demands on the Bundeswehr 10 III. Key elements 15 1. Armed forces planning and capabilities 15 2. Further development of the armed forces command and control organisation 19 3. Operational and materiel readiness of the armed forces 27 4. Procurement and in-service support 29 5. Federal defence administration 32 6. Federal Ministry of Defence 35 7. Strategic capacity 37 8. Planning law and funding 39 IV. Next steps 40 Imprint 42 CONTENT 3

Annegret Kramp-Karrenbauer Federal Minister of Defence The government policy statement of 23 July 2019 identified three priorities of work for the Bundeswehr. First: increase public awareness of the Bundeswehr; second: increase operational and materiel readiness; third: better combine tasks and responsibilities. Specific measures that have since been taken include: free rail travel in uniform, public pledge ceremonies, implementation of initial measures by the procurement organisation working group and the readiness initiative. Our position paper of 9 February 2021 identified the need for change beyond that the need for thorough adjustments in the Bundeswehr, the defence administration and the Federal Ministry of Defence (FMoD). As a next step, this document details the need for action and presents the proposals we have developed on this basis. We offer options for the prompt implementation of those proposals and develop prospects for setting the long-term course in the armed forces, the administration, with regard to procurement and in-service support, and in the Federal Ministry of Defence. The path we have now embarked on has been discussed for quite some time. Numerous internal and external analyses have examined the subject to a sufficient degree. We must now turn those insights into action. These key elements will initiate the necessary steps and concepts. All measures are supported by the FMoD executive group as well as military commanders. Eberhard Zorn Chief of Defence Photos: Bundeswehr/Sebastian Wilke The measures we have taken have one common goal: to make the Bundeswehr fit for the future. They intentionally do not resemble previous large Bundeswehr reforms, however. Such disruptive reorganisations will not be necessary in the next four to five years. In addition, the steps presented here will not require any additional personnel augmentation. They can all be accomplished within the scope of existing personnel structures. The two official seats of the Federal Ministry of Defence, in Bonn and in Berlin, have served us well, especially during the pandemic. Digital technology and flexible working mean that issues regarding location have become less urgent than they might have been in the past. For this reason, we do not believe there is any need for change in this regard. Within the scope of these key elements, we are assuming the executive responsibility assigned to us and are simultaneously striving to make a contribution to the decisions coming up in the next legislative period. 4 5

I. THE SECURITY ENVIRONMENT Photo: Bundeswehr/Marco Dorow Structural changes in international security policy are progressing at rapid speeds. The combination of emerging powers, revolutionary technologies, revived ideologies, demographics, pandemics and climate change creates a global situation that puts German security and defence policy under considerable pressure to adapt. Since 1955, the Federal Republic of Germany has also been making an important military contribution to ensuring freedom and peace in Europe. To ensure that this will remain possible in the future, we must make fundamental decisions today. As a tool of national public services and one of the federal government s foreign policy instruments, the Bundeswehr must not only have modern equipment and display an extraordinary degree of operational and materiel readiness. It must also be run efficiently and dynamically. Funding must be predictable in the long term and in line with the more intense threat situation as well as the significantly increased need for the ability to act independently in the field of security policy. The public, however, has not yet fully grasped the changes in the security situation and the related need for new political approaches. Most people remain unaware of the countless cyber attacks on servers, networks and control systems that are directed against Germany, our institutions, businesses and citizens every day. Too little is known about the massive Russian rearmament happening only a few hundred kilometres from Germany s borders. The public massively underestimates the significance of nuclear deterrence with respect to security in Europe and the importance of nuclear sharing for Germany along with it. There is relatively little understanding of the rapid development of weapon technologies that permanently change conflicts and complicate arms control, for instance with hypersonic missiles, the militarisation of outer space and highly complex drone operations. China s ambitious and increasingly aggressive power politics, whose objectives include reshaping the rules-based order and international law, could also become a risk for Germany s globalised economy and is currently attracting more attention than it used to. The resulting security risks for our country, however, still appear to be too intangible for most. At the same time, the rules-based multilateral order, whose benchmark is respect for human rights, democracy, and the rule of law, is increasingly coming under pressure within the scope of this more intense risk and threat environment. China, Iran, Russia, and North Korea are not the only ones openly defining themselves as a counter-model to a liberal social order. Other actors are following suit and feel both emboldened and encouraged. The increase in non-state actors that violently pursue their own or other power interests, overtly or covertly, is consistent with this trend. These developments and a number of others are challenging Germany and Europe, not only politically and economically, but also and especially with respect to security and defence policy. For 6 THE SECURITY ENVIRONMENT THE SECURITY ENVIRONMENT 7

one thing, the hard risks for European security have changed and intensified significantly. For another, Europe s main ally, the United States of America, is increasingly pivoting away from Europe. For this reason, Europeans must become more ready to defend themselves and increase their ability to take military action, both in their own interest and as a partner in the Atlantic security space. Based on its geographic location at the heart of Europe, its economic performance and the fundamental connection between German and European security, our country has a particular obligation. Germany s diplomatic and military capabilities are an essential contribution to empowering a free, independent and safe Europe. In detail, this means: Demands on the Bundeswehr will increase in the short, medium and long term. This applies to the German armed forces core mission, protecting Germany and German citizens as well as Germany s allies, but also to the equally important task of making a contribution to international crisis management. To make sure that Germany remains a powerful and competitive player in security policy as well as a reliable partner and ally, the Bundeswehr must be even more rigorously geared toward the changed and concentrated requirements with respect to capabilities, organisation and operational and materiel readiness. To this end, a great deal of research within the FMoD s area of responsibility, but also outside of the Bundeswehr, has yielded analyses and comprehensive insights. A number of study results and recommendations for reform were taken into account. They include suggestions from working groups such as those regarding the project on modern leadership development and civic education ( Innere Führung heute ) and the procurement organisation. They also include numerous ideas on reforming command and control organisation, for instance from the study phase of the National General/Admiral Staff Officer Course at the Bundeswehr Command and Staff College and from generals and admirals. Suggestions by the chiefs of the services regarding the adjustment of command and control structures as well as analyses by the directors of higher federal authorities and directors-general at the Federal Ministry of Defence were also evaluated. Lastly, considerations by political representatives and the parliament, as well as parties and parliamentary groups, and insights gained during discussions with military personnel of all ranks within the scope of troop visits were taken into account. Our own findings are consistent with external ones: We need stronger strategic management, more streamlined processes and a focus on the essential aspects. We must streamline our structures, remedy top-heaviness and confusion over responsibilities, and once again create operationally ready, larger formations. We will only improve our operational and materiel readiness if we focus on our core mission and consistently adapt accordingly. Lessons learned during the COVID-19 pandemic also confirm this. Our military personnel have displayed great motivation and outstanding accomplishments. At the same time, we have realised once more that there is room for improvement with regard to coordination and command and control. All in all, this paints a clear picture: There is no Photo: Bundeswehr/Christian Thiel 8 THE SECURITY ENVIRONMENT THE SECURITY ENVIRONMENT 9

need for a fundamental Bundeswehr reform. The current stationing concept and force structures put us in a good overall position. However, the Bundeswehr Concept and the Bundeswehr Capability Profile (both from 2018) require provisions and ideas to supplement and update them. Swift adjustments of armed forces planning, command and control organisation and requirements regarding operational and materiel readiness are necessary. II. DEMANDS ON THE BUNDESWEHR Based on Germany s roles within the security environment, there are specific demands on the Bundeswehr. National and collective defence and initial-entry forces The Bundeswehr must remain able to conduct military operations against peer competitors in combined arms operations and, in future, also in multidomain operations across the entire spectrum up to high-intensity combat. This necessitates military deterrence capabilities across the entire spectrum, including nuclear sharing. The same authoritarian states that use hybrid approaches to flexibly control conflicts below the threshold of Article 5 of the North Atlantic Treaty continue to expand on their conventional warfare capabilities and already have initial-entry capabilities today. In light of security policy developments and technological progress, time and speed are becoming considerably more important. The Bundeswehr must be capable of responding to a conflict escalation without long lead times, i.e. employing initial-entry forces, especially on the external borders of the Alliance. Initial-entry capabilities for responding to an escalating military crisis require a cold-start capability, a high degree of responsiveness, and robustness against existing enemy anti-access/area denial (A2/ AD) architectures. A high level of operational and materiel readiness even in peacetime is paramount. This requires integrated systems of combat units and support forces that are structured, trained and equipped in a way that allows for rapid deployment. They must be ready for quick deployment, scalable to different scenarios and agile, i.e. capable of quickly establishing a concentration of effort. In future, conflicts will be led and decided across all domains land, air/space, maritime as well as the cyber and information domain with quick changes of focus and often deliberately masked and obscured by hybrid activities at the intersections of peace, crisis and war. Our armed forces must be in a position to provide our political leadership with flexible military options as well as forces and capabilities that are able to act Photo: Bundeswehr/Marco Dorow 10 DEMANDS ON THE BUNDESWEHR 11

Photo: Bundeswehr/Marco Dorow in all domains as required by the situation. They must be able to act quickly and seamlessly across domains and be sustainable across the entire spectrum of domains simultaneously. In this context, interoperability and coordinated action between domains down to the lowest tactical level are essential. To this end, a stronger focus on domain responsibility as well as coordinated action between domains is necessary. This applies to command and control organisation, structure, and planning and conduct of operations. For this reason, the guiding principle is: Organise as you fight. Seamless command and control from the strategic and operational levels down to the lowest tactical level are imperative. Germany as a central hub, homeland security and national territorial defence In peacetime, the Bundeswehr must be able to perform and coordinate extensive duties within the scope of administrative assistance. Even during the initial stage of an emerging crisis, the Bundeswehr must already be able to contribute to preventive security and, in the event of national/collective defence, contribute to homeland and Alliance security. The task spectrum includes ensuring command and control as well as support capabilities, including the protection of defence-critical infrastructure, and ensuring that the Alliance has operational freedom in Germany including adjacent seas, airfields and the cyberspace. This requires logistic capabilities as well as secure bases for land, air and naval forces to ensure the Alliance s freedom of movement and the ability to take action in continental Europe. To cover this wide span of command and control, the Bundeswehr needs a functional and resilient territorial command and control organisation. The national territorial commander must be able to perform their duties seamlessly across all functions, and through a command and control organisation in peacetime, in the event of a disaster or state of domestic emergency or during a state of tension or defence. This means that the competences and structures assigned to the national territorial commander must be consolidated. Sustainable performance of these tasks is only possible with strong territorial reserves that are quick to deploy. This requires a high degree of operational and materiel readiness, also for the reserves, in terms of structure, personnel, and materiel as well as with regard to training status and infrastructure. It must be possible to augment the reserves quickly and at an early stage. The decision to establish home defence regiments was our first step in this process. In line with a whole-of-government approach, command and control organisation in homeland security and national territorial defence must network and coordinate even more closely with structures pertaining to civilian preparedness for war in the future. International crisis management The Bundeswehr must remain prepared to contribute force contingents to international crisis management for extended periods of time. It will have to contribute to rapid response capabilities in the event of international crises, especially within the framework of NATO, the EU and the UN, and earmark rapid response forces for this purpose. This includes the capability to command and control units of this kind. In this context, the Bundeswehr often acts as a framework partner for smaller nations and assumes command responsibility for multinational task forces. A supporting partner with shared values Germany will continue to be one of the nations that play a key role in NATO and the EU. This 12 DEMANDS ON THE BUNDESWEHR DEMANDS ON THE BUNDESWEHR 13

role is in keeping with Germany s own aim of making contributions in all domains that are commensurate with our size and economic power, which is in line with our partners expectations. Accordingly, the Bundeswehr needs to maintain a broad military profile from which other nations, especially smaller ones, can draw support. As a credible partner with shared values, the Bundeswehr must also further increase its focus on the international level in order to take action together with partners worldwide. To this end, the Bundeswehr will take measures such as further expanding and enhancing its cooperation in the areas of armaments and in-service support, as well as joint exercises with its partners within the existing political framework. III. The following five basic principles will guide the further development of the Bundeswehr s command and control organisation: Improved functionality: command and control structures and processes must be designed will be reinvested at the tactical levels Increasing operational and materiel readiness: all the measures initiated will contribute to increasing the armed forces operational and materiel readiness. Photo: Bundeswehr/Björn Wilke to ensure that tasks are performed quickly and smoothly Increased effectiveness: interfaces are reduced in number and clearly defined, responsibilities determined, and discontinuities do not exist between the individual levels Expanded decentralisation: wherever possible, required forces and assets will be integrated Domain-specific aspects that have special effects on mission accomplishment will also be taken into consideration. At the same time, these principles are essential criteria for the necessary follow-up analyses. 1. Armed forces planning and capabilities Principles and objectives Principles and objectives into the relevant structures; forces and assets will only be pooled centrally where absolutely necessary Strengthening the troops: the resources freed up by changing the command and control structures and reducing top-heavy organisational structures The commitments Germany has made in line with the NATO planning targets are an integral part of its national level of ambition and reflect the Bundeswehr s long-term aims. The Bundeswehr Capability Profile implements Germany s national level of ambition for armed forces planning, which means 14 15

that it will continue to guide future measures. However, the changing circumstances mean that we have to adjust parts of this system of objectives. To this end, we have to review the qualitative and quantitative characteristics of the capabilities and, if necessary, redefine the point in time at which each is to be achieved. Our goal is to increase the overall availability of combat-ready forces. For this purpose, it is not strictly necessary to establish consistently ideal conditions reduce costs and complexity and in the interest of improved management, prioritisation, and acceleration of projects with consistent requirements controlling Prioritise commercially available systems and multinational cooperation whenever possible in procurement decisions. We should accept development solutions in order to secure key technologies or if there are no suitable commercially available products. for task accomplishment. Instead, it is a matter of Photo: Bundeswehr/IAF creating sufficiently suitable solutions in reasonable periods of time and with clearly defined points of focus. At the same time, a wide variety of military capabilities will be developed at different quantity and quality levels. In terms of quantity, this spectrum ranges from fully equipped active duty forces to nonactive assignment to the reserve troops, while the quality ranges from state-of-the-art advanced technology to the robust bulk of assets. This approach will be implemented from the top down. We need to: Institute consistent strategic capability controlling, in close consultation with the personnel responsible for the different domains, for the qualitative and quantitative characteristics of the capabilities Establish the strategic planning board of the FMoD executive group that regularly defines the relevant priorities, specifications for levels of excellence and quantity, and the deadlines for when these levels need to be achieved in terms of strategic decisions on future action Strengthen the Chief of Defence s overall planning responsibility for the overarching concept for military defence through a more efficient and centralised planning landscape Monitor the planning and procurement process to Priorities Some capabilities are so important for national and collective defence or so urgently in need of modernisation that they are already priorities. We need to establish continuous, effective, interoperable command and control capabilities from the strategic level down to the lowest tactical level. There is an urgent need for action at the tactical levels. At these levels, a command and control capability will soon be established that ensures highly mobile planning and conduct of operations for the armed forces across all domains and intensities on a multinational basis. Technical options must be assessed and tested in the context of scheduling, personnel and financial requirements to determine whether they offer actual benefits. Developing the capability to achieve rapid projection, in all domains, of joint force structures capable of taking action will increase the operational flexibility of our armed forces. In the land domain, a continuum of light/airmobile, medium/motorised and heavy/ mechanised forces will be established for this purpose. We will develop a cross-domain ability to prevail against an adversary attempting to deny our forces access to an area of operations within the scope of anti-access/area-denial (A2/AD). This includes not only self-protection e.g. through ground-based air 16 17

defence but also the necessary offensive capabilities such as standoff weapon systems and unmanned systems. The Bundeswehr is facing a twofold challenge: once again fleshing out and strengthening its existing capabilities and structures on the one hand, and keeping up with rapid technological developments on the other. This forces us to set clear priorities. For example, we must continually review which German capabilities are important because they represent a vital contribution to the capabilities of NATO and the EU and are essential elements of current and likely future operations with our partners and allies. We must consistently provide input regarding our national considerations on these matters to the relevant NATO and EU processes at an early stage. One contribution to national and collective defence provide the following for NATO and the EU: A fully operational national division in the land domain Command and control, as well as the core of a multinational air group, in the air domain Permanent command and control of or participation in up to four NATO or allied maritime task forces, as well as taking on responsibility for the Baltic Sea area (Baltic Maritime Coordination Function), in the maritime domain A Cyber and Information Domain Task Force capable of cooperation in the cyber and information domain, along with a Combined Joint Operational Communication Task Force and a Multinational Geo-Meteorological and Oceanographic Support Including the support forces necessary for each of the above. Photo: Bundeswehr/Stefan Foto: Bundeswehr/Andrea Petersen Bienert is providing major units that offer our partners points of connection. In addition, we need to improve our capability to move these forces, as well as the units of our North American and European partners, across Germany as a central hub. Among other things, this requires logistic capabilities from railway flatcars and motorway infrastructure to coordination of troop movements without which the Alliance would be unable to take action. This also applies to essential enablers of military operations, e.g. command and control capabilities, as well as logistic assistance and medical support for operations. Furthermore, it concerns specialised 2. Further development of the armed forces command and control organisation The armed forces command and control organisation will be adapted to the increased and changed demands on the Bundeswehr. The focus will be on consistently orienting the organisation toward the tasks of operational command and troop-contributor in the domains. In accordance with this guiding principle, the following will be under the administrative control of the Chief of Defence in future: Two operational commands with directive authority for national command and control of operations high-value capabilities such as reconnaissance, airto-air refuelling, and air transport, as well as operations throughout the electromagnetic spectrum, including electronic warfare and special operations forces. We must now aim to quickly increase our operational and materiel readiness in order to outside of Germany and for performance of the Bundeswehr s tasks at home Four domain commands that provide operationally ready forces and component commands for national and international tasks and Joint elements that enhance operational and materiel readiness throughout the Bundeswehr. 18 19

Restructuring will adhere to the following principles and common guidelines: We will maintain the target of 203,300 military personnel. This figure also includes military service volunteers and reservists. The positions needed for reservists in the future must be analysed with a view to maintaining an operationally ready reserve force within this target size. Stationing, force structures and unit designations will generally remain unchanged. We plan to design the structure and scope of staff, agency and specialist positions to allow for an increase in capacities for force structures. In terms of national and collective defence, we particularly aim to improve the rapid availability of proven, combat-effective task forces. Specific aspects of options for improved integration or more effective cohesion of the logistic, medical and other cross-cutting support forces in the various domains with a special focus on the land domain will be assessed under ministerial direction. The key criteria in this regard are functionality, resource requirements and attractiveness. Adjustments to internal structures should be kept to a minimum. In accordance with the Chief of Defence s guidelines, increases in efficiency and available resources will be reinvested to benefit the lower tactical levels and strengthen urgently needed capabilities in the support forces. In order to sustainably increase the operational and materiel readiness of weapon systems, all domains will pool the relevant responsibilities and competencies, as well as the corresponding elements for concept, further development and operational and materiel readiness of the weapon systems, in system houses for the domain-based coordination of competencies and responsibilities. Subject to examination results regarding procure- Photo: Bundeswehr/Tom Twardy ment and in-service support, this includes those areas of in-service support and operation that remains responsible for the national command and control of all operations and standby commitments Photo: Bundeswehr/Christoph Liesmann could be assigned to the domains and, additionally, domain-specific elements. Bundeswehr health care will be treated in much the same way. Subject to examination results regarding procurement and in-service support, this includes those areas of in-service support and operation that could be assigned to the domains and, additionally, domain-specific elements. Bundeswehr health care will be treated in much the same way. outside of Germany, for national risk prevention and the operational command and control of the Bundeswehr special operations forces. Bundeswehr Territorial Operations Command We will establish a Bundeswehr Territorial Operations Command. In order to increase resilience, it will be based in Bonn and Berlin. In Bonn, we will also make our contribution to strengthening cooperation with For operations across domains, we will establish a Bundeswehr Joint Doctrine Centre at the Bundeswehr Command and Staff College. We are also examining the possible establishment of a Joint Operations/Warfare Centre in the future. Bundeswehr Joint Forces Operations Command The Bundeswehr Joint Forces Operations Command relevant bodies and authorities, such as the Federal Office of Civil Protection and Disaster Assistance. The national territorial commander/german Joint Support and Enabling Service Headquarters will examine the details under ministerial direction. To increase whole-of-government resilience, we also plan to strengthen the regional territorial commands in the 16 federal states. 20 21

The future commander of the Territorial Operations Command will also be the national territorial commander. The Territorial Operations Command will perform territorial tasks at home, including assistance in the wake of natural disasters, national emergency situations and severe accidents. It will coordinate the deployment of forces within the scope of NATO and EU operations and be responsible for homeland security and national territorial defence. in the areas of concepts and further development as well as training and exercises and consolidate it with the aim of combining it with other elements to form a system for the land domain-based coordination of competencies and responsibilities. Integration of the Heeresinstandsetzungslogistik GmbH (LLC responsible for ensuring the operational and materiel readiness of major Army weapon systems) remains to be examined. Photo: Bundeswehr/Dirk Simpson Domain commands Chiefs of service will command the land, air/space, maritime and cyber and information domains. Their tasks will include advising the Chief of Defence, providing combat-ready forces and being able to provide component commands (highest tactical domain command). Establishing domain commands promotes the necessary development from a contingent-based way of thinking (modular combination of centralised structures of purely functional major military organisational elements) to deployable formations that are as self-sufficient as possible and also provide modules to form contingents. Land domain We will improve the cohesion of land forces by reducing their current fragmentation across the existing major organisational elements. To this end, the Bundeswehr CBRN Defence Command, the Bundeswehr Military Police Command and the Multinational CIMIC Command will be assigned to the land domain as self-contained capability coordination commands without implications regarding scope or resources. The land domain will assume the pilot function for supporting other domains with these capabilities. The Army will establish a Land Warfare Centre for the purpose of pooling responsibilities and competencies Air and space domain We will strengthen the air and space domain by establishing the Bundeswehr Space Command under the responsibility of the Air Force. It will be planned in detail and run at the Kalkar garrison across domains and especially in close cooperation with the German Cyber and Information Domain Service Headquarters. Multinationalisation of the Command is the goal. In addition, the Air Force will establish an Air Warfare Centre for the purpose of pooling responsibilities and competencies in the areas of concepts and further development and will examine possible integration of the Federal Office of the Bundeswehr for Military Aviation with other elements in a system for the air domain-based coordination of competencies and responsibilities with the aim of sustainably increasing materiel readiness. The option to transform the Federal Office of the Bundeswehr for Military Aviation into a civilian higher federal authority for military aviation in Germany must be considered as an alternative. The Air Force will streamline its command and control structures, particularly with regard to clearly defining responsibilities and establishing capability commands to strengthen the troops. Maritime domain We will strengthen the Navy s command and control capability by achieving full operational and materiel 22 23

readiness of the German Maritime Forces Staff and by improving the ability to plan and command national and multinational maritime exercises and operations. In addition, the German Navy is preparing to assume a special responsibility for the Baltic Sea area once it assumes the Baltic Maritime Coordination Function. The Navy will establish a Maritime Warfare Centre for the purpose of pooling responsibilities and competencies focussing on the areas of concepts and further development of operational capabilities. Possible integration of the Naval Arsenal and the Naval Support Command with other elements in a system house for the maritime domain-based coordination of competencies and responsibilities with the aim of sustainably increasing the operational and materiel readiness is being reviewed. Cyber and information domain We will strengthen the capabilities for the planning and conduct of operations in the cyber and information domain and take a holistic approach to the further development of military intelligence. The cyber and information domain will intensify its cooperation with the Federal Office for Information Security and, pursuing an interagency approach, with the National Cyber Response Centre in keeping with Germany s cyber security strategy. The cyber and information domain will streamline its structures by reducing them to one decisionmaking level and one implementation level and reinvesting vacant posts to cater to specialist tasks. Command and decision-making levels will be pooled in the German Cyber and Information Domain Service Headquarters. Furthermore, as an element of military intelligence for the strategic and operational levels, the Joint Intelligence Centre will be placed under the administrative control of the Chief of the Cyber and Information Domain Service. In addition, the cyber and information domain will establish a Cyber and Information Domain Warfare Centre for the purpose of pooling responsibilities and competencies in the areas of concepts and Photo: Bundeswehr/Martina Pump Photo: Bundeswehr/Patrick Grüterich further development. This will be combined with other elements to form a system house for the cyber and information domain-based coordination of competencies and responsibilities, i.e. a Bundeswehr Centre for Digitalisation. Bundeswehr health care Health is a key element of operational readiness and of Bundeswehr personnel welfare. The successful development of the Bundeswehr Medical Service must be continued. For this reason, turning the Surgeon General of the Bundeswehr into a role within the Federal Ministry of Defence will highlight the prominent position of Bundeswehr health care. The Bundeswehr Health Care Headquarters will be newly established at the next subordinate level. The Surgeon General of the Bundeswehr will assume technical re- sponsibility for health care within the area of responsibility of the Federal Ministry of Defence and for the Bundeswehr Medical Service within the scope of the special functional area. The Surgeon General s responsibilities will include: Strategic management of health care and operational medical support across domain commands and agencies Providing direct expert advice to the executive group and the Commander in Chief of the Armed Forces Representation with regard to health issues in interagency processes Medical management/functional control, for instance when dealing with health situations (e.g. pandemics, bioterrorism, etc.) as well as with regard to security issues related to health (global health) 24 25

Photo: Bundeswehr/Maximilian Schulz Medical Service personnel careers and Medical Service competence development in the Bundeswehr and çdical materiel specific to the Medical Service. Within the scope of examinations regarding procurement and in-service support, potential assignment of responsibilities in the context of procurement of specific medical materiel will also be considered. The objectives are to improve the overall provision of medical services for fully operational forces, raise the standard of professional excellence and further pursue the path toward intensive cooperation with the civilian health care system in order to meet future health care challenges. In the medium and long term, we will continue to enhance the multinational cooperation of medical specialist services in Europe and NATO that was initiated with the establishment of the European Medical Command/Multinational Medical Coordination Centre. Joint elements The joint elements are: The Bundeswehr Command and Staff College The Leadership Development and Civic Education Centre and The Bundeswehr Office for Defence Planning. The future position of the Federal Office of the Bundeswehr for Military Aviation within the administrative structure will be examined in the context of detailed planning of the system for the air domain-based coordination of competencies and responsibilities (see above). A ministerial evaluation will focus on future roles and tasks as well as the position within the administrative structure of: The Bundeswehr Logistics Command The Armed Forces Office and The Multinational Joint Headquarters Ulm. The evaluation of the Armed Forces Office will be carried out taking into account the transfer of tasks from the Federal Ministry of Defence. It should be examined whether the Armed Forces Office could assume additional administrative tasks with regard to resources, functionality and command and control span as well as whether the Armed Forces Office should be transformed into a newly established Bundeswehr Office, if necessary. In light of the range of the aforementioned joint elements and with regard to their specific tasks and functions for the armed forces, the different options for possible command relationships and positions within the administrative structures will also be examined. This includes combining them into one support section or establishing separate central armed forces agencies. The future assignment of the German Military Representative (DEU MILREP) to the NATO and EU military committees and the position of the Federal Academy for Security Policy within the administrative structures will also be examined in this context. 3. Operational and materiel readiness of the armed forces The equal weight given to the tasks of national and collective defence and the lessons we have learned from our involvement in NATO readiness forces in recent years have shown that we can no longer think of operational and materiel readiness in terms of contingents alone and we can no longer measure weapons systems solely in terms of the percentages of material stockpiles. Both are a biased perspective and can lead to a misperception of the overall operational and materiel readiness of the Bundeswehr. 26 27

Photo: Bundeswehr/Marcel Kröncke The yardstick for the operational and materiel readiness of the Bundeswehr is its capability to accomplish its mission. For this reason, a new reporting system will be established in order to inform parliament in a transparent fashion. Our armed forces as an entirety must be ready for action; they can, however, be available after different lead times. In this context, the armed forces must be considered as a whole. To that effect, the amount of operationally ready and available forces must be increased. The declared objective is to fully equip the forces with modern materiel. Until then, however, our units must be operationally ready with the equipment at their disposal. The Chief of Defence will issue an annual strategic directive looking several years ahead as a guideline for establishing and maintaining operational and materiel readiness and for resource prioritisation. Operational and materiel readiness system To realise these goals, a new system will be established to ensure the improvement of operational and materiel readiness. The new operational and materiel readiness system will synchronise tasks, materiel and personnel as well as training and exercises. This requires the effective control of phases of uptime and downtime for personnel and materiel in a three-part cycle that considers the special features and dependencies of each domain: Deployment phase: deployment is possible with a lead time of 7 to 30 days Heightened operational and materiel readiness phase: lead time of 30 to 90 days Basic phase: regeneration and limited availability with a lead time between 90 and 360 days. 4. Procurement and in-service support An effective and efficient procurement organisation is vitally important for the materiel readiness of the Bundeswehr. It fulfils a variety of different tasks from developing future technologies and managing complex armaments projects to fulfilling the daily requirements of the forces. Because of this, it has a complex structure in terms of organisation, subject matter, and processes. For this reason, the 2018 coalition agreement called for a comprehensive review of the procurement organisation. A working group involving the Bundestag has developed proposals. In order to implement these proposals, a working group entitled Implementation Procurement Organisation has been established in the Ministry s area of responsibility. Through the intense and focused work of the members of this working group, 58 different measures have been implemented and noticeable progress has been made in the optimisation of the procurement organisation and the Federal Office of Bundeswehr Equipment, Information Technology and In-Service Support. We will continue to build on this progress and remain committed to optimising processes and structures. The Federal Office of Bundeswehr Equipment, Information Technology and In-Service Support with its agencies is the central management organisation and knowledge carrier in the Bundeswehr when it comes to the development and procurement of operationally viable defence materiel. It was assigned materiel responsibility for operational viability and the tasks of in-service support in 2012. It is also responsible for central tasks that ensure the operational and materiel readiness of weapon systems and products. 28 29

Photo: Bundeswehr/Benjamin Lihring This increase in responsibilities has led to an imbalance between tasks, personnel resources, and authority which has not been resolved in recent years. As well, many additional interfaces were created as in-service support and supply responsibility remained with the Services. The Federal Office of Bundeswehr Equipment, Information Technology and In-Service Support will focus on its core tasks, i.e. the development, procurement, and further development of defence materiel for the Bundeswehr and the management of armaments projects. How and when tasks of in-service support and the resources associated with them can be taken over by other organisational elements must be determined. The aim is to pool tasks, personnel, and resources as well as available expertise. This will strengthen the responsibility of in-service and supply managers in the domains. The special nature of each domain will be considered and new procedures and organisations will be explored. The efficiency and effectiveness of the Federal Office of Bundeswehr Equipment, Information Technology and In-Service Support must be ensured and, in the long term, increased. In order to enhance the operational and materiel readiness of the armed forces for scenarios of national and collective defence, we must improve the balance between tasks, personnel and assets, including processes and their interfaces. The Implementation Procurement Organisation working group has laid the foundations, and we must now build on these foundations to achieve our goal. In addition, the parameter of operational and materiel readiness, i.e. concrete data on the material readiness of individual systems, must be given more consideration when decisions on armaments projects are made. Optimisation of the procurement and in-service support organisation The key to optimisation is appropriate decisionmaking bodies involving all stakeholders (strategic planning board) that make binding decisions at an early date in the procurement process on what is required and how it should be procured. To prepare these decisions, cooperation between the responsible directorates in the Ministry, the Bundeswehr Planning Office, the Federal Office of Bundeswehr Equipment, Information Technology and In-Service Support, and the domain commands must be intensified during this phase. The relevant aspects (technical, legal, economic, risks, and market situation) must be considered at this early stage and with all stakeholders and must be evaluated in the process of selecting a procurement option. Owing to available financial and personnel resources, we will make greater use of purchases and complex services as procurement options in addition to the current Customer Product Management (CPM). The comprehensive digitalisation of the procurement and in-service support processes plays a vital role in this context and therefore has priority. This includes the harmonisation and automation of processes as well as continuous data and information management. This supports a common and comprehensive situation picture and improves process control through readily available and qualitatively sound information at all process stages. The procurement organisation outside the Federal Office of Bundeswehr Equipment, Information Technology and In-Service Support will be strengthened and equipped with the resources it needs to accomplish its tasks effectively and efficiently. At the same time, we will expand the Bundeswehr Purchasing procurement option as an independent pillar of Bundeswehr procurement and will make it an 30 31

in-house service provider for the Bundeswehr and crisis operations. To this end, we must respond to the the Ministry effects of the organisational and structural adapta- In this context, the Bundeswehr Service Centres will tions of the armed forces to the regional structures play an important role as competent local service of the federal defence administration and to optimise partners for the forces. We will quickly and consis- working relationships. We must consider strength- tently use the potential of automation and digitalisa- ening the regional and technical structures of (local) tion for projects such as electronic ordering platforms. organisations as key service providers and first points The digitalisation of the Bundeswehr and thus of its of contact for the military. procurement system has taken an important step Additionally, we will adapt the internal structures of forward with the introduction of cluster logic, i.e. the the federal defence administration in such a way that definition of conceptually coherent subsets with clear they contribute to robustness and agility in crisis situ- responsibilities. This enables us to keep pace with ations. It is important that we establish robust rela- the short innovation cycles of modern information tionships with agencies and organisations outside the technology. We must continue on the path of digitali- Bundeswehr which can support us in such situations sation and the central provision of IT services for the with the necessary services, personnel, and materiel. Bundeswehr and must pool the necessary organisa- To this end, we must amend emergency preparedness tional elements. and emergency control legislation accordingly. With regard to the complex questions of procure- Procedures and processes in select areas such as per- ment and in-service support, the Federal Ministry of sonnel management as well as morale, welfare, and Defence will examine other opportunities for optimi- support must be further modernised, made more effi- sation. At the same time, we must explore whether cient and accelerated in order to ensure better, more public procurement law will allow us to realise flexible, and situation-appropriate mission accom- complex military procurement projects faster, more cost-effectively, and in line with the requirements of the Bundeswehr. 5. Federal defence administration Defence administration structures must also be efficient, effective, robust, and able to exercise command plishment and to strengthen social security. Infrastructure The enormous infrastructure requirements of the Bundeswehr call for a further acceleration of the cumbersome process of providing and maintaining infrastructure. Where acceleration is necessary, we must concentrate financial and executive responsibilities in Photo: Bundeswehr/Sebastian Wilke Foto: Bundeswehr/Dirk Dehmel and control in critical situations up to and including our own area of responsibility, at least for particularly national and collective defence. As in the armed relevant Bundeswehr building projects, in order to forces, we will take corrective action wherever top- exert control over infrastructure processes in these heavy structures have emerged which have created cases. This will help disentangle responsibilities and unclear responsibilities. will strengthen the Bundeswehr as a result. Interfaces Tasks, powers, and responsibility must be structured will be minimised, and the planning and control of in such a way that they form a clearly defined unit procedures will be better aligned. To this end, studies and allow rapid transitions between peacetime and must be conducted and legal foundations laid. 32 33

Photo: Bundeswehr/Jonas Weber Personnel The target strength of the Bundeswehr will remain unchanged. This will confront us with major challenges in the future. Personnel development must be enhanced and made fit for the future so that we can recruit new and retain current personnel. If the Bundeswehr is to remain attractive as an employer, we must have faster and more agile recruitment procedures and proactive and flexible personnel management that is geared, as far as possible, towards the individual interests of personnel. Education and qualification will play an important role in the future. The potential in this area must be utilised more consistently for the Bundeswehr and its personnel. For this reason, special attention must be paid to education. A special focus will be placed on the Bundeswehr schools of general vocational education. Measures that will make personnel development fit for the future include: the introduction of a new military performance evaluation system, the further development of the procedure to assess officers prospects and the career prospect conference system as a whole, and the continued development of the personnel development concepts for civil servants and employees specifically geared toward the needs of personnel. In the context of modern, attractive, forward-looking and agile personnel management, personnel development is geared, as far as possible, toward the individual interests of personnel. The intention is to set the course toward successful fulfilment of personnel requirements by means of proactive and early introduction of personnel considerations into change processes. This is combined with targeted recruitment and reliable, modern personnel management. Individual life phases are to be taken into consideration appropriately wherever possible and to an even greater extent than before to contribute to making service in the Bundeswehr more attractive. Sustainability and climate protection The concept for a sustainability and climate protection strategy in the FMoD area of responsibility that is currently being produced is the next important step toward achieving the federal government s climate goals. These goals are enshrined in the current Federal Climate Change Act, the most important being German climate neutrality by 2045 and a climate-neutral federal administration by 2030. The planned strategy will identify the specific goals and necessary measures to implement sustainability and climate protection in the FMoD area of responsibility while ensuring the operational and materiel readiness of the armed forces. At the same time, the initiated measures some of which have already been implemented successfully will be continued and systematically expanded (examples include the report of the expert group for mobile energy systems in the strategic industry dialogue, the pilot projects initiated in the context of green barracks and the ongoing initiative to expand the charging station infrastructure). The overarching sustainability goals affect several elements of the FMoD area of responsibility. The greatest challenges will arise with regard to infrastructure and mobility. Additional measures will be continuously developed in line with the strategy in order to facilitate the implementation of the comprehensive transformation process toward climate-neutral armed forces and a climate-neutral Bundeswehr. 6. The Federal Ministry of Defence Structures and processes in the FMoD area of responsibility must be clear and compatible at the national and international levels. In line with the reduction of 34 35

Photo: Bundeswehr/Andrea Bienert importance of national key technologies for security policy and the strategic orientation of the German government with regard to enterprises that are relevant to security, this area of work will become more important in the FMoD as well. The Federal Ministry of Defence is to focus on its essential ministerial tasks, systematically streamline the leadership structures of the ministry, reduce top-heaviness and make distances shorter. In doing so, high-value resources can be made available for the troops. In order to facilitate this streamlining process, to support the ministry in its work and to assign responsibility where it belongs, tasks must be transferred to other elements. In this context we must investigate which tasks can be performed by existing elements and to what extent new elements, e.g. a Bundeswehr Office, may need to be established. This will also happen in conjunction with the examination of the future role and responsibilities of the Armed Forces Office. 7. Strategic capacity Strengthening the FMoD s analysis capacity The coalition agreement for the 19th legislative period provides for a significant improvement of Germany s strategic capacity. Security-relevant trends must be recognised and analysed earlier, conclusions drawn from this must be put into a greater context, and our own efforts must be planned in the longer term. To this end, political analyses, research findings, situation pictures and background information from external and internal sources must be combined to create an integrated assessment. Recommendations for action on security and defence policy matters are to be supplied to the ministry s executive group on a more direct path. The steps that the FMoD has already taken to top-heavy organisational structures in the Bundeswehr and the decentralisation of the defence administration, during the next legislative period, the ministry should also be streamlined and downsized to match its core tasks. Personnel made available over the course of this process will be used to augment subordinate elements. These changes are geared toward the need for clear competencies and areas of responsibility. The FMoD must continue to perform the following core tasks: As the ministry responsible for the Bundeswehr as a parliamentary army, recognise the special cooperation relationship with the Bundestag Exercise the necessary functional supervision over the numerous and diverse activities of subordinate agencies and, above all Allow the Federal Minister of Defence to command and control the Bundeswehr in the complex crises of our times and on the basis of a real-time situation picture. The growing demands on Germany and the Bundeswehr based on their roles require a clearer representation of the strategic leadership level to coordinate and control the armed forces in the FMoD. The further development of the ministry during the upcoming legislative period must take into consideration completed evaluations and finalised decisions related to the detailed planning of the armed forces and subordinate structures. In addition to the general focus on specific ministerial tasks, the focus will be on improving the strategic command and control capability to coordinate and control the armed forces in peacetime and in crises. As the executive group s first step toward fostering a strategic industrial policy, State Secretary Mr Zimmer last year established the Staff for the Strategic Management of Armaments Activities. Given the growing Photo: Bundeswehr/Jana Neumann 36 37

Photo: Bundeswehr/Heissbach this end (e.g. cooperation with think tanks) are to be systematically developed further. The aim is to strengthen and expand the current analysis capacity of the ministry in view of a rapidly changing security situation. This will anchor the comprehensive whole-of-government approach to security more firmly within the FMoD. Security week for broad discussion Security and defence policy is a core area of public services. In order to handle this area of government appropriately in its entire thematic, political and administrative scope, the FMoD should, starting in the next legislative period, host an annual security week during which this topic is discussed comprehensively and publicly in all its urgency and diversity. The aim is to make the entirety of the security situation of the nation, including foreign and security and defence policy, more visible in politics and create public awareness. National security council We will continue to advocate within the government for the establishment of a national security council to pool all ministries subject matter expertise and reliably coordinate our strategic instruments. The comprehensive approach to security cannot be assigned to one field of policy, area of expertise or to a single ministry. A comprehensive situation picture and well-coordinated options for action across all available instruments of government requires the expertise, data, facts, analyses and assessments of all relevant ministries and players. Overall, this national security council could effectively utilise the Federal Chancellor s authority to issue guidelines in order to improve strategic coordination, increase the operational command and control capability and coordinate across ministries in crisis situations. 8. Planning law and funding The security of the Federal Republic of Germany is a whole-of-government task. We therefore support a Bundeswehr planning law that creates planning security and facilitates a long-term, balanced modernisation of the Bundeswehr while providing the flexibility required for a large-scale organisation. A Bundeswehr planning law must help to make security less dependent on economic fluctuations and short-term changes of public opinion and ensure reliable funding over a longer time period for security as a core task of the state. A Bundeswehr planning law must provide a reliable basis for the funding of essential large-scale projects that will benefit the entire nation, especially when these projects include an international or multinational component. It must also target the actual needs of the Bundeswehr, which are most often met by smaller projects. Providing a power generator for the command post can be as essential to the modern armed forces operational and materiel readiness as the timely delivery of new combat vehicles. For this reason, we support a Bundeswehr planning law that is adopted by parliament and therefore provides a more binding long-term planning framework than the federal government s current budgets. Considerable participation of parliament must also be ensured in the context of such a law. This is in line with the nature of the Bundeswehr as a parliamentary army. This Bundeswehr planning law would establish the framework for a long-term and guaranteed increase of the defence budget, provide planning security for the Bundeswehr and facilitate investment in future technologies. 38 39

IV. NEXT STEPS We aim to immediately begin with the implementation of the key elements by realising initial measures. As a priority, we will Establish a Bundeswehr Space Command in Kalkar under the command of the Air Force in the third quarter 2021 Assume the working structure for the new command and control organisation in the Cyber and Information Domain Service Headquarters by 1 October 2021 and transfer it into the new command and control organisation starting on 1 October 2022 Establish the Strategic Planning Board of the FMoD Executive Group this year Examine ways of strengthening the responsibility of in-service and supply managers in the domains, while taking the concept of system houses for the domain-based coordination of competencies and responsibilities into consideration Review options to further expand the Bundeswehr Purchasing procurement option as an independent pillar of Bundeswehr procurement Establish a joint doctrine centre at the Bundeswehr Command and Staff College Finalise the review of options for increased integration or more effective cohesion of the logistic, medical and other cross-cutting support forces in the various domains Photo: Bundeswehr/Jana Neumann Photo: Bundeswehr/Elisabeth Rabe Prepare proposals regarding command relationships and the allocation of the joint elements Establish the Surgeon General of the Bundeswehr in the FMoD by 1 January 2022 Establish the Bundeswehr Health Care Headquarters in Koblenz starting on 1 April 2022 and Establish the Bundeswehr Territorial Operations Command in Bonn and Berlin starting on 1 April 2022. The identified need for examinations and reviews to facilitate further decisions will be addressed immediately so the necessary follow-up decisions can be made at the beginning of the next legislative period. The implementation of the measures is to begin as soon as possible after the corresponding reviews are concluded and should be completed by 2025. 40 NEXT STEPS 41

Imprint Publisher Federal Ministry of Defence Leitungsstab Stauffenbergstraße 18 10785 Berlin Version Mai 2021 Design Redaktion der Bundeswehr/Daniela Hebbel Picture credits Cover picture: Bundeswehr/Stefan Petresen/Gergs/Marco Dorow/Martina Pump/ Daniela Hebbel (Montage) Print Federal Ministry of Defence Further Information Online on www.bmvg.de www.bundeswehr.de The brochure is part of the public relations work of the Federal Ministry of Defence. It is given free of charge and is not intended to sale. 42 IMPRINT Photo: Bundeswehr/Marco Dorow 43