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International Conference KNOWLEDGE-BASED ORGANIZATION

Vol. XXIV No 1 2018

POLISH - ROMANIAN MILITARY COOPERATION

Tomasz BĄK

Instytut Analizy Ryzyka Wyższa Szkoła Informatyki i Zarządzania w Rzeszowie


tbak@wsiz.rzeszow.pl

Abstract: Reborn after WWI, Poland needed to secure its borders properly against a potential
enemy. As a result of the undertaken negotiations, the state strengthened the protection of its
eastern border with a Polish-Romanian alliance. Before WWII, Romania was an important
ally of Poland in the region and the only neighbour with whom Poland had a good
relationship. Currently, both states are members of the EU and NATO, and their interests in
security converge, especially in the face of deteriorating security in Eastern Europe. Closer
military cooperation is also favoured by extensive political contacts and increasing
expenditure on defence in both those states. In fact, Romania may well become the main ally
of our country in the region within the next few years. [1]

Keywords: cooperation, military cooperation, Polish-Romanian alliance.

Introduction In autumn of that same year, the Romanian


1. Military cooperation of Poland and minister of foreign affairs contacted the
Romania before WWII Polish government with a direct proposal of
After the First World War ended, Polish cooperation within the Little Entente. Yet
diplomacy faced the difficult challenge of the mission met with a full fiasco, as it
ensuring strong borders of the reborn state. would mean the need for Poland’s
Another objective was to define the place of cooperation also with the Czechoslovakian
Poland in Central and Eastern Europe anew. diplomacy. At that time, Polish diplomacy
The planned system was supposed to be were not fond of Czechoslovakia due to e.g.
based on an alliance of Poland, Romania the trouble with Cieszyn Silesia. Thus the
and Hungary. Yet an alliance treaty first attempt at Polish-Romanian agreement
between Hungary and Romania could failed.
hardly be expected at a time when Hungary Yet Romanian diplomacy did not surrender
still held e.g. the annexation of the idea. Expansion from the East was
Transylvania against Romania. becoming an ever growing danger for the
After Poland signed a peace treaty with state. In that situation, the issue of an
Soviet Russia in October 1920, Bucharest’s agreement with Poland was revived, and
fears of aggression from the East Warsaw also wanted to benefit from the
intensified. It was considered highly likely favourable circumstances in the desire to
that Soviet troops would be used against ensure Poland’s eastern border for the
Romania in the nearest future. That threat future.
caused higher interest of Romanian By the end of November, the Polish
diplomacy in closer relations with Poland. minister of foreign affairs started

DOI: 10.1515/kbo-2018-0001
© 2015. This work is licensed under the Creative Commons Attribution-NonCommercial-NoDerivatives 3.0 License.

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developing a draft of the alliance treaty. binding both Poland and Romania,
The draft provided for a Polish-Romanian concerning the transformation of the
alliance which would include political, defensive alliance against Russia into a
military and trade agreements and a general one, aimed also against Germany.
confidential protocol. The Polish side, on the other hand, feared
The political agreement was supposed to that it would be involved in a potential
guarantee integrity of the eastern borders, Balkan conflict against its will. Both
geographically separate for Poland and Romania and Poland were afraid that the
Romania. Both states agreed to provide alliance might cause more harm than good,
immediate military assistance to the engaging them into an unplanned war
respective ally if the border were violated against their will.
by a “foreign military force”. The scope of In January 1921, Polish diplomats
assistance was to be defined in a separate presented a detailed project of a military
agreement. A three-year validity period was convention, which included e.g. the
planned for the political treaty. The treaty obligation of both sides to a joint defence
was to be public, ratified and officially against Russian attack, regardless of its
submitted to the secretary of the League of systemic form, and to providing ca. 85 000
Nations. soldiers by both allies (fourteen infantry
The military agreement was meant to divisions and two cavalry ones) if the need
specify the principles of military arise. Final provisions obliged both parties
cooperation between the allies, and a to jointly conclude truces or peace treaties.
detailed scope of the potential mutual The convention was initialled (not signed)
assistance. The issue of a trade agreement by both parties.
was not closely specified except for a plan The thus developed convention was to
to have it signed at a later time. The some extent useless, since each ally could,
confidential protocol assumed a in fact, evade providing actual military
confirmation of border integrity between assistance at any time.
the allies and neutralisation of any attempt On conclusion of the talks between military
of Eastern Galicia to separate or become agents, it was time to develop a suitable
independent. political agreement and adjust it to the
Conclusion of the negotiations was delayed convention. The Romanian side issued a
by the fact that Romanians feared Polish- statement to the effect that it was
Hungarian friendship, which in their view consciously striving towards an alliance
could be harmful to Romania in the future. with Poland, but wished to have no
The pace of the negotiations was also relations with Hungary or Bulgaria. Both
slowed down by a note from Russia which states took steps to obtain support for the
reassured Romania of Russia’s peaceful agreement from France and Great Britain.
intentions towards the state. Romanians France expressed a favourable stand in the
also feared the possibility of being included matter, as it saw the future alliance as
in the ongoing Polish-Soviet war. They complementing the Polish-French one. The
were afraid that once they signed the two allies were apprehensive of the reaction
treaties, their new ally might take further of British politicians, but that obstacle was
military actions. also lifted.
The Romanian side suggested adding an However, the Polish government was not in
article to the public part of the treaty stating a hurry to conclude the matter, because
that Romania could conclude separate signing a Polish-Romanian alliance during
agreements, which could later evolve into peace talks with the Bolsheviks could cause
alliance treaties. The confidential protocol serious complications at the negotiation
would also have an additional provision table. On the other hand, they also waited

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for conclusion of an alliance with France, no major differences from the one initialled
which would strengthen Poland’s position on 29th January. It consisted of 11
in talks with Romania. The allies-to-be also paragraphs which defined e.g. specific
preferred to wait for the right moment to times for mobilisation and assumed joint
conclude the treaty. Polish-Soviet actions of the staffs of both armies in
negotiations came to a deadlock, and mobilisation conditions.
rumours from Warsaw brought news of a Thus the several-month-long negotiations
planned offensive. Signing an alliance at brought results in the shape of a Polish-
such a moment could result in immediate Romanian alliance which was to ensure the
engagement of the Romanian army in the protection of our eastern borders.
maelstrom of military actions. After five years since the treaty was first
Finally, on 19th February the negotiations effective, both sides signed a “guarantee
and settlements concerning the military contract” with a military annex named
convention came to a close. An obligation “arrangements techniques” in 1926. [2] An
was written into the political agreement to important political change as compared to
have war declared by the respective party if the convention of 1921 was the obligation
its ally was attacked, and to jointly of mutual defence in the case of any attack,
conclude truces and peace treaties. A and not just one from the East. The military
provision was also included that the part of the treaty assumed that the other
alliance would be ratified by Poland only party would actively and automatically join
after the negotiations in Riga were the war only in the case of an attack from
concluded and a peace treaty signed, yet it the East. On 15th January 1931, the political
would be effective from the moment of convention was prolonged without any
signing in Bucharest. Signing a trade treaty major changes to the content. The modified
was also planned, but it was not a priority arrangements techniques were signed in
to the Polish government, hence the matter June 1931, specifying mutual obligations.
was postponed. They provided e.g. for joining the war in
Finally, the Convention on a Defence the case of an attack on the eastern border
Alliance Between the Republic of Poland and of one or both states, even in the case of
the Kingdom of Romania was signed on 3rd previous engagement in a conflict with a
March 1921. The final version of the military different enemy, and if the attacker was
convention was signed on the same day. other than the USSR, the parties were
The convention on a defence alliance obliged to provide aid to the attacked
consisted of eight articles and three partner in the area of supplies, transport and
confidential protocols. They obliged the transit. The agreement was to remain in
allies e.g. to provide mutual help in the case effect for five years and be automatically
of an attack from the eastern borders. The prolonged if not previously terminated; thus
convention established the obligation for 1936 saw an automatic prolongation.
communication in the matters of foreign The resumed Polish-Romanian inter-staff
affairs and relations with eastern conferences continued joint operational
neighbours. The effectiveness of the treaty studies, work on the issues of material
was set for five years, and the partners were cooperation, unification of armament and
obliged to communicate in matters of equipment, matters of transport, transit, etc.
concluding further alliances. That did not The allies also cooperated within
concern treaties already in existence or intelligence, and the Polish arms industry
under negotiations. As stated above, the placed serious deliveries of military
treaty included three confidential protocols equipment in the market of the Romanian
with detailed arrangements. The military partner. In 1932, Romania decided to
convention, signed on the same day, held purchase several dozen of P-11 aircrafts

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from PZL (Polish State Aviation Works), for 20 years. It had an automatic five-year
and in 1935 a contract was signed for the prolongation provision.
sale of Polish gas masks to that country. [3] After the war, both states were under the
The treaties were automatically prolonged USSR sphere of influence and became
for another five-year period in 1936. In a members of the Warsaw Pact in 1955. The
practical dimension, both governments Treaty on Friendship, Cooperation and
endeavoured e.g. to coordinate development Mutual Assistance between the People’s
plans for military forces and principles of Republic of Albania, People’s Republic of
operational cooperation. [4] Due to a highly Bulgaria, People’s Republic of Hungary,
unfavourable development of the situation German Democratic Republic, People’s
in Europe in the 1930s, the interwar Polish- Republic of Poland, People’s Republic of
Romanian alliance was mainly of a Romania, the Union of Soviet Socialist
symbolic significance. Both states were too Republics and the Republic of
weak, both in a political and in a military Czechoslovakia became the basis for
sense, for their cooperation to stop the military cooperation of Poland and
German and Soviet aggression in 1939. Romania.
On 6 IX 1939, Romania officially declared On 12th November 1970, another Treaty on
neutrality in the new conflict, although it Friendship, Cooperation and Mutual
agreed to the transit of military equipment Assistance was signed. It became effective
supplies to Poland through Romanian on 15 III 1971. The treaty stated among
territory. On 17th September, faced with others that in the case of armed attack
USSR aggression, the Polish minister of against one of the High Contracting Parties
foreign affairs released the Romanian side from any state or groups of states, the other
from the alliance obligations in the name of High Contracting Party would immediately
the Polish government, hoping Romania provide assistance with any and all means it
would grant right of way to the Polish had at its disposal, including military
authorities on their way West. Yet on assistance, as necessary to repel the armed
crossing the Romanian border, Polish attack.
government members were interned.
Bucharest did not accredit its representative 3. Military cooperation of Poland and
for Gen. Władysław Sikorski’s Polish Romania after NATO accession
government in exile formed in France, but Currently, Poland and Romania develop
it allowed the activity of Polish diplomatic their military cooperation, especially within
and consular posts in Romania. That state their membership in NATO. Just like
held until 4 XI 1940, when the posts were Poland, Romania has for many years
closed at the demand of the Romanian supported American initiatives and actively
authorities. That equalled breaking off any participated in them in military and
official relations between the former allies. diplomatic areas, which naturally brings the
two states closer. After the fall of the USSR
2. Military cooperation of Poland and and regaining sovereignty by the former
Romania after WWII until 1999 communist states, Poland and Romania
After the Second World War, cooperation developed mainly economic cooperation
between Poland and Romania (including based on the treaty on friendly relations and
the military area) was established by cooperation, signed on 25th January 1993.
signing the Treaty on Friendship, Cooperation within defence was regulated
Cooperation and Mutual Assistance by an agreement on cooperation within the
between the Republic of Poland and the military area.
People’s Republic of Romania. It became Only in the 2010s, after their accession to
effective on 29 XI 1949 and was binding NATO (Poland in 1999, Romania in 2004)

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and the European Union (Poland in 2004, Romanian authorities are very intensive.
Romania in 2007), the two countries began The political cooperation forms a good
to see the potential for cooperation within basis to develop bilateral defence
security, including defence. High similarity cooperation. The cooperation of the two
of positions in security issues was states within NATO is based on a common
conducive to deepening the cooperation. position in key issues related to NATO
That results to a large extent from a similar activities. Poland and Romania are mainly
strategic environment (Russia as a interested in maintaining the defensive
neighbour), historical experiences, energy nature of NATO, and in the face of Russia’s
determinants (dependence on the supply of aggressive actions, in maximum
Russian raw materials) and the need to enhancement of collective defence abilities
catch up economically with the western EU based on art. 5 of the Washington treaty and
states. Both states see their membership in strengthening the eastern flank of the
NATO as the main outer pillar of their Alliance. At the Newport summit, Romania
national security. Both view the role of the was Poland’s main regional ally who made
Alliance mainly in the context of collective endeavours for the Alliance to adapt
defence. Both Poland and Romania strive to strategically to the new situation concerning
ensure that NATO retains the ability for security in the East of Europe. Very helpful
defence operations based on art. 5 of the in developing a common position was the
Washington treaty, which has gained eastern flank summit organised by the
particular significance now, after Russian Polish president, Bronisław Komorowski,
aggression against Ukraine. The on 22nd July 2014 in Warsaw. The
cooperation between the two states is based participants included the presidents of
among others on a strategic partnership. Poland, Estonia, Lithuania, Latvia, the
A declaration to that effect was signed by Czech Republic, Slovakia, Hungary,
the presidents of Poland and Romania [5] Romania and Bulgaria.
on 7th October 2009, and the action plan [6] An example of mutual support within
was approved by representatives of the NATO may be the fact that in 2008
Ministry of Foreign Affairs during a visit of Romania delegated 2 officers to work with
the Polish president on 26th October 2010. the Multinational Corps Northeast in
The declaration states e.g. that “the main Szczecin. [9] It also joined the NATO
aim is to adjust NATO to new abilities and Military Police Centre of Excellence in
missions in the area of the Atlantic and Bydgoszcz. The Polish army, in turn, have
globally, as well as to enhance the political, one person in HUMINT COE (Human
military and economic role of the European Intelligence Centre of Excellence) [10] in
Union in areas of common interest” [7]. Oradea, Romania. Poland and Romania
The cooperation is based on the Agreement actively participate in NATO’s programmes
between the Polish government and the and activities. Both states joined the
Romanian government on bilateral defence AWACS programme (Poland in 2008,
cooperation, signed by the Polish minister Romania in 2011), which is the aerial
of national defence and the Romanian component of the of NATO’s early warning
minister of defence on 5th June 2013. It system. Allied reconnaissance aircrafts
replaced the previous agreement of 1994, regularly use Polish airspace for
concluded years before either state’s reconnaissance flights, they may use the
accession to NATO, as the provisions of airport in Powidz, and 6 Polish soldiers
that agreement did not quite agree with the work in the structures of the NAEW&C
legal basis of NATO as concerned bilateral Programme Management Organisation
cooperation between its members. [8] (NAPMO). [11] Also, along with 13 other
Current political contacts of Polish and NATO members, both states participate in

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the Alliance Ground Surveillance (AGS) 20th November 2013. The issues discussed
programme, which is planned to be fully during the meeting included topics related
operational by 2017 [12], and the Strategic to the progress of technical modernisation
Airlift Capability (SAC) programme, the in Polish and Romanian armed forces,
result of which was the establishment of a implementing the adopted armament
unit of 3 C-17 aircrafts stationed in the programmes and current cooperation. The
Papa base in Hungary. [13] Romanian delegation also visited the Polish
The construction programme for the Defence Holding (PHO Sp. z o. o.), Polish
European Phased Adaptive Approach Chamber of National Defence
(EPAA) announced in 2009 provided for Manufacturers (PIPnROK) and WB
four stages of its implementation. Within Electronics S.A. [15] In September 2011,
the programme, the United States decided BUMAR (currently Polish Defence
to build two land bases with SM-3 missile Holding Sp. z o.o.) and the Romanian
launchers in Romania (by 2015) and in company UTI signed a contract for
Poland (2018). cooperation within security systems,
Since 2010, the ministries of defence of software for crisis management integration
Poland and Romania hold expert systems, border and military facilities’
consultations concerning BMD (Ballistic protection and security, integrated solutions
Missile Defence). The consultations are a for critical infrastructure (including power
forum for exchanging experiences, mainly facilities), transport, petroleum mining,
in connection with the legal aspects of power and gas networks, as well as joint
cooperation with the US in that matter, as R&D activities. Another element of
well as work on a holistic system of NATO cooperation were issues connected with
missile defence. Several sessions of talks missile defence. The contract also covered a
took place within that format. Romania range of non-military areas and
could also potentially be interested in collaboration in third markets. [16]
purchasing modern air protection systems, Moreover, PIPnROK holds talks with its
considering the fact of Poland Romanian counterpart (Asociatiei patronale
implementing the programme “Shield of romane a producatorilor de tehnica
Poland”; Poland gaining such abilities militarapatromil, PATROMIL) on
within the programme could open a new industrial cooperation within air defence (a
potential area of cooperation development. relevant agreement was concluded in 2012,
and later specified in more detail in an
4. Scientific, industrial and technical annex signed in June 2013). PIPnROK
cooperation stresses the purposefulness of
The Romanian arms industry is the second synchronising the plans of the Polish and
biggest in Central and Eastern Europe, and Romanian enterprises, opening a dialogue
it has similar problems as the same industry between users and producers in order to
in Poland. Despite that, military repair and specify the initial equipment requirements,
production companies as well as research and starting bilateral discussions of military
institutes supervised by the ministries of users in order to choose a common air
defence do not use the cooperation defence ground system or its elements for
potential. A step in the right direction was both parties. [17]
reactivating the Polish-Romanian Mixed
Commission for Military and Technical Conclusions
Cooperation in November 2013, after 16 Increasing the scope of military and
years. [14] The Commission’s sessions took diplomatic collaboration between Poland
place when the Romanian secretary of the and Romania may help obtaining better
state for armament visited Poland on 19th– conditions of joint alliances and initiatives.

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A closer military alliance with Romania context of NATO, cooperation with the
may also facilitate talks with European USA and potential bilateral cooperation
countries which have different priorities in within building national defence abilities
issues related to national security and EU (of short and medium range). Both Poland
security. [18] and Romania still lack national abilities
Current Polish-Romanian relations within they could contribute to the NATO system,
defence are characterised mainly by a high although Poland has started to build them,
and still not fully used potential and contrary to its ally. Currently, Romania’s
growing dynamics. They have been modernisation priority are multirole
developing intensively only since Romania aircrafts (the purchase of F-16 and
accessed NATO in 2004, and gained more modernisation of their intended station in
dynamics after establishing strategic the air base in Fetești), but it is possible that
partnership in 2009. The main areas of high the state will decide to modernise its air
potential for closer cooperation are issues (and missile) defence system in the future,
related to negotiating positions concerning as the currently used post-Soviet S-75 M3
technological modernisation of the army launchers and American MiM-23 Hawks
and cyber defence (mainly in the area of were designed in the 1950s. The current
strengthening defence abilities and the contribution of Poland and Romania to
eastern flank) in NATO. NATO missile defence is their agreement to
Due to the relatively broad powers of the grant the use of the land to locate elements
presidents of both states within national of the system. After activating both bases in
security and defence issues, contacts Devesel (2015) and Redzików (2018),
between the state heads is a necessary participation in the project will be a natural
element of good military relations. area for closer cooperation, which may
Since 2011, contacts at the level of include joint exercises, exchanging
presidential advisors for national defence experiences in base functioning, as well as
have developed very intensively. creating legal basis for the presence of the
The gradually increasing Romanian defence American forces in the particular state.
budget and ambitious modernisation One of the growth areas in defence
projects will set the stage for closer bilateral cooperation is cybersecurity. Due to the
cooperation, with air force being one of the dynamic development of electronic systems
potential areas. The Romanian government in every area of defence, but also of
signing a contract of purchase of 12 used F- economic and social life, ensuring security
16 aircrafts from Portugal (for 600 million in cyberspace will be one of the major tasks
euro) in October 2013 opened new for NATO states in the 21st century. It is
possibilities in air force cooperation of thus the more important to seek partners for
Romania and Poland. [19] Poland, which cooperation and exchange of experiences,
has used F-16 for nearly 10 years, may be a and Romania has much to offer in the area
useful partner for Romanian air forces of cybersecurity. Romanian services which
regarding exercises and exchanging combat Internet dangers enjoy good
experiences in the use and maintenance of reputation worldwide.
the machines. The purchase of F-16 crafts There are good grounds for the defence
will thus be a good occasion for joint cooperation of Poland and Romania to
Polish-Romanian exercises (possibly develop more dynamically, especially in the
together with the US), exchanging practical aspect. First, the bilateral relations
experiences in exploitation of the aircrafts have a good, long history. The cooperation
and perhaps in limiting maintenance costs. before WWII, even though it did not bring
Another perspective area is air defence, spectacular results, is still indicated as a
including missile defence, both in the positive example by both states. Second,

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Poland and Romania have a practically full 1. performing the obligations within
correspondence of security interests, both as security and defence as resulting from the
concerns NATO and the European Union. membership of both discussed countries in
The existing small differences (the main NATO and the European Union;
ones being e.g. the attitude to Kosovo’s 2. projects aiming at NATO’s military
independence, or promoting the Black Sea transformation;
as a strategic direction by the Romanian 3. cooperation of arms industries, in
government) currently lose their particular as regards modernising the armed
significance in the face of other, far more forces and using the possibilities offered by
serious challenges for the flank states. the European Defence Agency;
Third, the recent years saw the development 4. consultations concerning the
of political cooperation in a variety of effectiveness of multilateral actions within
formats and with numerous bilateral visits. combatting modern threats to the
It is high time now to fill the said formats international security environment;
with content. Fourth, the growing threat 5. military and technical cooperation.
from Russia is an impulse to revitalise An important factor in shaping mutual
defence in Central and Eastern European relations between Poland and Romania
countries. Poland and Romania both within defence is the Polish-Romanian
understand that NATO security guarantees strategic dialogue, occurring since March
do not exempt them from building national 2011.
defence abilities and strengthening state The catalogue of areas for future defence
resistance to aggression. They increase their cooperation between Poland and Romania
defence budgets, which allows to includes e.g.:
modernise the army and helps cooperation. 1. defence planning;
Fifth, it has recently turned out that the 2. the functioning of the armed forces in
cohesion of the principal formats in which modern democratic societies, including the
Poland invested, such as the Visegrád application of provisions of international
Group or Weimar Triangle, is questionable. treaties on defence, security and arms
The sharp security crisis in Europe caused control;
an increase of other partners who share the 3. peace and humanitarian missions as
Polish perception of threat to a greater well as other operations of international
degree. Those include Great Britain organisations concerning peace support and
(particularly within NATO), Scandinavian combatting terrorism;
countries (Sweden and Finland) and 4. organisation of the armed forces,
Romania. It is thus worth investing in including military unit structure and HR
defence relations (and more broadly – in management policy;
security), both engaging in trilateral 5. logistic support for the needs of the
cooperation including Turkey, as suggested armed forces;
by the Romanian side, and engaging 6. military education system;
Romania in formats in which Poland is 7. military personnel training;
active. That would serve both to 8. activities within combat search and
counterbalance tendencies disadvantageous rescue (CSAR);
to Poland (e.g. in the Visegrád Group), and 9. research within defence technology;
to build a broader coalition within NATO 10. development, maintenance and repair
or the EU in matters of interest. of arms and military equipment;
The Ministry of National Defence expects 11. modernisation and conversion of arms
that further bilateral contacts within defence and military equipment;
cooperation will be connected with the 12. military IT systems, information and
following areas: communication technologies;

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13. normalisation, quality control and 15. law and economy within defence.
codification in the military; We are hopeful that the above will bring
14. military medicine and medical many tangible benefits for both states.
support;

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Atlantyku oraz na poziomie globalnym, jak również wzmocnienie politycznej,
militarnej i ekonomicznej roli Unii Europejskiej w obszarach wspólnego
zainteresowania”;
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[14] The Commission was established in 1994 based on provisions of the agreement on
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