To conclude on the basis of numbers only is easy, and the result is equally easy to present convincingly with the support of graphs. However, anybody who bothers to include just a fraction of the relevant strategic and military history soon realise that purely quantitative analysis is meaningless and dangerous as a basis for political decisions on security policy. In order to establish a more solid basis for policy and strategy, one has to use and apply the knowledge and insight of relevant professionals, even if this calls for both hard work learning new stuff and for rare humility.
The current West European view of present Russian revisionist military resurgence still has a relaxed and facile head-in-the-clouds-or-sand character. It is dangerously anachronistic in its views of Russian backwardness and remains based on the amateurish view that comparisons of official budget input and status in the form of basic bean counting of equipment numbers are both relevant and sufficient in the estimate of military power and related options. It seems to be considered an unchallengeable reality and is constantly promoted by shallow political scientists, busy journalists, empty heads on uniforms and parroting politicians.
Their amateur comments and advice quickly worsen an already dangerous situation by reinforcing decision-maker and popular trust in what in reality is a Potemkin Village that is fully transparent to even semi-professional observers from the outside. They will be tempted to test what they rightly see as our intellectually unchallenged combination of self-delusion and bluff.
The guide is for those who are willing to face the complex and unpleasant reality. This small guide will not and cannot present any exact result. It can just offer an approach to gain the essential deeper insight.
The first step is to define the geographical focus (such as the Baltic-Nordic Region within the general European “theatre” of potential conflict) and to accept that military power unfortunately has very little to do with the amount of money spent.
Large amounts of money as well as sorely needed intellectual energy is wasted on:
1) running small and large base complexes for reasons rather unrelated to military power
2) paying salaries for a large number of officers without any recent practical experience and relevant knowledge of or interest in their profession or even their branch speciality
3) paying salaries to a large number of other ranks as well as civilians with no operational or relevant operational support role, many too old to contribute anything, people with no wish to learn or subordinate themselves to the military profession
4) paying salaries to underemployed full-time personnel in positions where a contract or even drafted reservist would be the better choice
5) supporting education systems that actually undermine military professionalism by seeking empty theoretical academic credits
6) supporting expensive employment and working hour contract systems that are incompatible with maintaining effective forces
7) implementing New Public Management and similar civilian fads that undermine the essential clear link between authority and responsibility for advice and implementation
8) living up to the agreed environmental standards of the state that add nothing to military effectiveness
9) maintaining elements of force structures only or mainly relevant for national prestige, anti-terrorism, ceremony or peace time work (such as fishery inspection, gendarme work, etc.)
10) covering pensions for retired military personnel
11) covering the cost of the veteran support system
12) covering costs of outsourcing driven by liberal ideology that create dependence on support structures without any military potential
13) covering costs of a general state rescue service rather than only the extra civil defence capabilities only relevant in war
14) covering costs of the general state cyber defence organisation rather than only cyber defence and offence capabilities needed in joint and combined arms operations
15) deliberate derailing of professional focus to chase such fringe mirages as application of “lawfare” to contain destruction and human suffering in remaining conflicts, gender framework for the application of fire and manoeuvre and the pursuit of “green warfare” … those responsible arrogantly assuming eternal peace from large scale war
There may be perfectly good political reasons for all these budgeting choices, but most are irrelevant in a military balance analysis and some even detract from the military effect of the money spent.
On the other side some states such as Russia and China fund large and capable para-military forces with war-time combat or security roles outside the defence budget.
Basically the budgets should be ignored in the analysis of relative power, because the total input necessary to produce the same military effect may be several times larger in one state than in another.
The second step is to accept that simple “bean counting” of the two sides’ number of combat aircraft, tanks, submarines, artillery weapons, etc. is nearly as irrelevant, because it ignores:
1) the availability (with fully trained operating crews, available and trained support crews, spare parts, ample stocks of key weapons such as precision munition, etc.)
2) whether fully modernised/updated (if not, it has very limited general use and cannot be counted in a comparison)
The third step is to understand whether all forces of a country would be available in the potential theatre of confrontation/war (U.S. forces meant for the Pacific and in East Asia cannot be counted as NATO forces for European operations as China and North Korea are likely to use any crisis in Europe to move positions forward … or worse)
Numbers are not irrelevant if all things are equal: the equipment similar, crew standards were comparable, leadership and doctrine at same quality level and the situation symmetrical, however that is hardly ever the case, especially before extended fighting enhances harmonisation.
The initial part of the fourth and decisive step is to identify the number and availability of the force elements that should be counted as the main building stones of military power:
1) On land the relevant output to be counted is the number of basic army formations (brigades)
2) At sea the relevant output is the exercised potential for creating mixed naval task groups that are clearly balanced in composition for the analysed deployment area (with robust command-and-control systems, long range surveillance and warning, mine counter-measures, anti-submarine, long range anti-ship as well as appropriate air and missile defence systems)
3) The relevant air power element to be counted is the number of fully capable composite air combat wings that can be organised from the national air forces (with command-and-control, long range air-to-air, effective electronic and other means for suppressing enemy air defences and a mix of precision and area weapons against ground targets)
Your have to accept that the key to any sound analysis is to concentrate on the comparison of output in the form of fundamentally similar force elements available in the relevant potential theatre of conflict.
However, such a counting and comparison of the number of such force packages is not sufficient. The follow-on analysis is at least as essential and includes e.g. answering the questions that requires the professional insight that is ignored for very good reasons by “experts” that can’t have it:
1) Is the force element well-balanced for the mission? Does it have the necessary combat elements, flexible and robust command and control elements, indirect, long range fire systems with integrated reconnaissance elements (if surface forces), robust area and point air defence systems, engineer support (if land or air units), full and flexible logistic systems, and with resilience and redundancy created by personnel and equipment replacement systems. If not balanced, the force is only a facade usable for bluff.
2) Has the command cadre and the full units been exposed to a realistic and demanding, free-play training and exercise regime and the cadre thereafter been trimmed deliberately on the basis of practical performance to enhance quality? This may be quantified by counting the frequency, length and peace-time limitations of exercises ranging from fully scripted, one type, generic scenario, command post, computer supported exercises at one end of the spectre to unscripted, free-play troop exercises within changing mission scenarios and with deliberate elements bringing disruption of plans to increase friction and realism. Only the latter type of exercises can add significantly to force combat readiness.
3) Does the command philosophy encourage flexibility in execution?
4) Are one side’s forces deliberately handicapped in relation to availability of means (such as cluster ammunition, anti-personnel mines, thermobaric weapons)?
5) Are one side’s forces handicapped in the level of integration and range of indirect fire weapons?
6) Are one side’s forces handicapped by inferiority in key technical fields such as cyber warfare or electronic warfare (e.g. in the air defence/offensive air operations field)?
Even forces such as mechanised brigades that are more or less similar in manning, equipment and technological level can be fundamentally different in de facto capabilities. If one brigade has been through a rigorous, realistic two-year exercise programme and have weeded out inefficient leaders and other cadre and the other brigade has just maintained a peace-time activity level, the second formation simply does not have a military capability. It is just another waste of state funds.
It is important to accept that some forces cannot be directly included in the force comparison for a specific part of the potential conflict theatre such as large oceanic surface and submarine naval warfare units in the Baltic Sea, Black Sea and East European operational context. The same applies to the general nuclear forces of Britain, France, Russia and the U.S.
In the force comparison it is essential to accept that multinational land forces with mix at brigade or lower levels are as militarily ineffective as they may be effective as a symbol of political solidarity. Due to language, equipment and training differences and diplomatic politeness they must be considered military Potemkin Villages if the bluff is called.
One final element: In relation to land forces it is essential to underline the fundamental operational handicap of the defender.
Normally we think that a defending unit can defeat an attacking force 2-3 times as large. This, however, assumes that the attacker must attack frontally, that no side has a clear artillery advantage, and that neighbouring units are in place to prevent the defender being bypassed. If the Russians had to assume that NATO would and could act offensively, they would have no advantage, but Western Alliance political cohesion requires a defensive posture.
Mobile (mechanised) land combat forces do not have the mobility of air and naval forces to concentrate and engage the enemy where and when he emerges. With a couple of thousand kilometres of threatened sectors on the European eastern border, the side with the freedom to choose the time and places of invasion needs far fewer forces than the defender that have to screen all possible sectors and therefore will have significant forces deployed in sectors that prove to be irrelevant. A brigade or battalion can only screen a limited sector of threatened border and defend even less.
A platoon to company detachment blocking a road will be destroyed by artillery in minutes and only the quality of any obstacles will create delay. A well-equipped and led battalion with engineer elements, robust air defence and long range artillery support can hold a frontage of around five kilometres with one major road for some hours. If no neighbours, it will thereafter be forced to withdraw or be bypassed and destroyed. A brigade can cover 2-3 times that frontage and two major roads.
Even a two to one superiority in land forces will not ensure success for the reactive side on the eastern border. When part of these forces can be freed and arrive at the actual invasion, the invader is most likely to have the tactical defence advantage, meaning that the late arriving force of the defender will need a three-to-one superiority to succeed.