67 Sodobni vojaški izzivi/Contemporary Military Challenges
OBLIKOVANJE VOJAŠKE STRATEGIJE 
REPUBLIKE SLOVENIJE
David Humar
Nina Raduha
THE PROCESS OF DEVISING THE MILITARY 
STRATEGY OF THE REPUBLIC OF SLOVENIA
V članku je predstavljen potek priprave predloga Vojaške strategije Republike 
Slovenije znotraj Slovenske vojske z namenom oblikovanja zgodovinskega spomina 
in krepitve prepričanja, da sta obramba in varnost stalen proces, ki ne more biti 
odvisen od vsakodnevnega političnega razpoloženja, temveč mora biti dobro 
načrtovan, nivojsko in resorno usklajen proces, ki je na koncu zapisan v strategijah. 
Nato in EU intenzivno sprejemata nove strategije na obrambnem in vojaškem 
področju. Sledi jima Republika Slovenija z oblikovanjem prvega predloga Vojaške 
strategije Republike Slovenije. Bistveno vlogo pri oblikovanju predloga strategije 
do zdaj je imel proces, ki je zagotovil krepitev in sistematizacijo vojaške misli, 
poenotenje razumevanj znotraj Slovenske vojske in usklajenost z obrambno-
vojaškimi dokumenti.
Vojaška strategija, potek priprave vojaške strategije, Vojaška strategija Republike 
Slovenije.
The article presents the process of developing the Military Strategy of the Republic 
of Slovenia within the Slovenian Armed Forces, with the aim of building historical 
memory, and in the strengthening belief that defence and security are a continual 
process that cannot be subjected to everyday political mood, but must be a well-
planned process, departmentally coordinated at all levels, which is finally written 
into a strategy. NATO and the EU are intensively adopting new defence and military 
strategies, followed by the Republic of Slovenia with its first proposal of a Military 
Strategy. A key role in writing the proposed strategy was played by the process within 
the Slovenian Armed Forces, which ensured the strengthening and systematization 
of military thought, the synchronization of its understanding, and harmonization 
with defence-military documents. 
Military strategy, process of drafting military strategy, Military Strategy of the 
Republic of Slovenia.
Povzetek
Ključne 
besede
Abstract
Key words
DOI:10.33179/BSV.99.SVI.11.CMC.23.2.4
 68 Sodobni vojaški izzivi/Contemporary Military Challenges
The significantly changed security environment, the changed strategic balance 
of forces, the emergence of new and complex threats after 2014, the information 
technology revolution, and modern security challenges require and deserve our 
attention, and dictate a faster adaptation of national and international security and 
military structures in order to be as effective as possible in ensuring peace and 
security.
Security is not a self-evident good, as is shown by an overview of major crises and 
conflicts, hybrid action1, terrorist attacks, natural and technical disasters, famines, 
infectious diseases, migration, environmental problems, economic crises and so on, 
which can escalate towards the conventional use of military power (Conflict trends, 
2020; HIIK, 2019; ReSNV-2). In such a reality, no-one is absolutely resilient and 
safe, a fact confirmed by a number of experts (Ramirez et al., 2018; Furlan, 2020; 
Malešič, 2016; Žabkar, 2003). Strategic shocks warn us that security trends are not 
linear; they can lead to even greater discontinuity. Changes are a trend we must 
follow. NATO and the European Union (EU) are aware of these trends, and since 
2014 they have been in a phase of adapting to the changed security environment, 
and transforming and adopting new strategies. NATO is already implementing its 
new military strategy and vision for NATO 2030, and is announcing a new strategic 
concept. The EU has decided to develop a »Strategic Compass« by 2022, which will 
be a policy document for the EU's Common Security and Defence Policy (NATO, 
2021; Garmone, 2020; NATO ACT, 2020; NATO 2030, 2021; Rynning, 2020, 
Vergun, 2019; Broeks, 2020; EU Parliament, 2019; and EU Council, 2019). 
The Republic of Slovenia (RS) follows these trends with the ambition to participate 
in ensuring effective national defence and regional and global peace in accordance 
with its interests, political decisions and obligations to the homeland, alliances and 
partnerships, but primarily with regard to its obligations to its citizens. In 2019, the 
RS adopted a new Resolution on the National Security Strategy of the Republic 
of Slovenia (ReSNV-2). It has also begun to increase its defence budget and raise 
awareness of the importance of a credible and effective military organization 
to protect national interests and goals. Currently, based on the defence policy’s 
ambitions, the Ministry of Defence and the Slovenian Armed Forces (SAF) are 
revising key development planning documents: a Resolution on the General 
Long-Term Development and Equipping Programme of the Slovenian Armed Forces 
(ReSDPRO SV), and the Medium-Term Defence Programme (SOPr 2021/2026). 
With these two documents and the renewal of other relevant normative acts, the 
state should determine the scope and timeline of providing human, financial and 
material resources and a normative framework for the development of the SAF and 
its capabilities. 
1 Hybrid warfare combines actions from irregular and conventional warfare, extensively using new technologies 
and StratCom. For more see https://www.hybridcoe.fi/coi-strategy-and-defence/.
Introduction
David Humar, Nina Raduha
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THE PROCESS OF DEVISING THE MILITARY STRATEGY OF THE REPUBLIC OF SLOVENIA 
In accordance with the Vision of the SAF Chief of the General Staff (Vision, 2019), 
the consent of the Minister of Defence2, NATO and EU documents and concepts, 
defence and military development trends, and on the basis of in-depth military-
professional analyses and assessments of international security trends, risks and 
threats, the SAF has launched a systematic approach to the development of the 
proposal of the Military Strategy of the Republic of Slovenia (MS RS) for the 
first time. It will be followed by the review and revision of doctrinal documents, 
concepts and guidelines for the engagement of the SAF and its operational plans for 
different scenarios. After thirty years of the existence, development, growth and of 
the RS and its defence forces, the SAF, following the necessary military strategic 
considerations, has produced an MS RS proposal. The purpose of this document 
is to define the Ends and Ways of SAF strategic engagement, and the directions in 
which the SAF should develop according to national directions and aspirations3. The 
drafting of the document was approached systematically, on the basis and with the 
use of contemporary knowledge and experience. A guided process with extended 
discussions was put in place, using cooperation with other defence structures in the 
RS.
The main research topic of this article is the process of developing the MS RS 
proposal within the SAF. The goal is to systematically record the process of strategic 
thinking and development of the strategy and to emphasise the need for the MS 
RS. In addition to this, the aim is to expand military strategic knowledge and its 
importance for effective military engagement both in the RS and beyond. The record 
of the development of the MS RS has a dual purpose; the basic intention is to record 
and inventory the process executed by the SAF as one that enabled the strengthening 
and unification of military strategic thought, the final product of which is the proposal 
of the most senior military document in the RS. The second purpose of this article 
is to produce a tool4 that will facilitate an easier and more systematic approach to 
the production of security, defence and military related strategic documents. For 
the theoretical background of the article the method of analysis of primary and 
secondary sources was mainly used. The main research method is a case study by 
observation during participation (the first author of the article was in the lead of the 
MS RS process, while the second was a member of the red group and the expert-
support group), through exercises and surveys conducted among the participants in 
the process of formulating the strategy text.
The main research questions of the article derive from the statement that the RS and 
the SAF need the MS RS, which should be adopted at the level of the Government 
of the RS, and which will arise as a result of a process of military strategic 
thought synchronized with defence and national security thought, ambitions, goals 
2 In Slovenia, the Secretary of Defence is called the Minister of Defence.
3 The Means will be defined and planned in ReSDPRO SV and SOPr.
4 The article leans on the theory described by Furlan (2020, 2021) and Vuk (2020), Lykke (2001), Yarger (2006), 
and Rumelt (2017).
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and resources. In this context, we will seek answers to questions about strategic 
consideration, whether there were any peculiarities in the production of the MS 
RS with respect to the theory, why the RS and the SAF need a military strategy at 
this time, and why we did not have one before. Additionally, we are interested in 
the dilemmas faced in the process of the development of the MS RS, and whether 
the MS RS as a document can contribute to the desired SAF positioning in the 
state’s and society’s structure, i.e. for the SAF to be recognized as a credible part 
of the instrument of national power both at home and abroad, while enjoying a high 
reputation in Slovenian society.
 1 THE NEED FOR MILITARY STRATEGIES 
Military strategy is the art and science of the engagement of the armed forces to 
achieve the national goals, especially in the field of national security, by using military 
force or threat. Based on the defined national security interests and threat assessment, 
the essence of such a strategy is to determine strategic military objectives, necessary 
resources, risks, and, consequently, military ways to achieve the set national security 
objectives. A military strategy is based on the national security strategy and the 
defence strategy5, and must express the connection of the armed forces with the 
other elements of the national security system. The strategy must also reflect the 
country's commitments to the international community, which in Slovenia’s case 
must pursue national interests within international organizations and partnerships, 
especially NATO and the EU.
There are several reasons why the need to formulate a military strategy of the 
Republic of Slovenia has emerged. We can combine them into external and internal 
reasons, as described below.
External reasons include changes in the international security environment, and 
an increase in military threats on the periphery of the Euro-Atlantic area, which 
has been intensifying since 2014 with the use of military force, more intensive and 
complex hybrid actions, and military operation conflicts below the threshold of war. 
As a result, NATO and the EU are embarking on new strategies to strengthen their 
military capabilities, introduce innovations in military operations, and raise their 
level of preparedness. After 50 years, NATO developed its new Military Strategy 
(NMS)6, which was issued in May 2019. It is of crucial importance from a military 
point of view, because it was founded on a Capabilities-Based and Threat-Informed 
5   In the case of the RS, it must also be based on the Defence Act of the Republic of Slovenia (ZObr 1994), in 
which, due to the lack of strategic documents at the time of its creation, certain elements that usually belong to 
strategies and doctrines were also defined.
6   Relevant public source about the NMS: NATO (2019), Vergun (2019), and Broeks (2020).
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Approach7. In 2016, the EU adopted the EU Global Strategy »Shared Vision, 
Common Action: A Stronger Europe« (EU Global Strategy – EUGS), which guides 
EU foreign and security policy, including military development and action8. The 
Republic of Slovenia also joined these processes in 2019, when it adopted a new 
Resolution on the National Security Strategy (ReSNV-2).
Internal factors begin with the need for clearly defined military strategic thought. 
Despite the fact that the SAF has most of its operational capabilities at the tactical 
level, it needs a strategy for SAF engagements as a whole in national defence and 
in NATO and EU activities, especially in collective and common defence. In its 
30 years of independence, the RS has not yet developed a comprehensive military 
strategy9, a written and unified military strategic thought, which would improve 
and unify strategic knowledge, development and operation, and thus contribute 
to other national and international strategic documents and activities. The internal 
reasons include the fact that, despite its predominantly tactical capabilities, the SAF, 
as a national armed force, must ensure its involvement in providing security at a 
strategic national and international level, which can, in its core military essence, 
only be defined by a military strategy. A military strategy is required due to the 
processes initiated by ReSNV-2 and the growing awareness that ignorance and 
misunderstanding of security risks and threats can pose a critical risk to national 
security. Internal factors also include the fulfilment of the obligations of the RS 
to international allies and partners, which anticipate the strengthening of military 
capabilities and the strengthening of the deterrence and defence posture. Thus, the 
MS RS provides a conceptual connection with national, NATO and EU documents, 
as well as with the documents of allies and partners.
Consequently, and in accordance with the vision and intention of the Chief of the 
General Staff, in 2020 the SAF began the process of drafting the MS RS proposal 
(Vision of the Chief of the General Staff of the Slovenian Armed Forces, 2020), 
which is to be prepared and submitted to the competent authority by summer 2021. 
7 With a coherent top-down approach, the NMS provides directives and guidelines to the military structure for the 
continuous and effective development and use of Allied military instruments of power over a 10-year period. Its 
implementation is based on two documents: Deterrence and Defence of the Euro-Atlantic Area Concept (DDA), 
issued in June 2020, and NATO's Warfighting Capstone Concept (NWCC) issued in 2021. The contents of the 
documents are mostly confidential, but publicly available summaries of the documents used in the article are the 
following: NATO, 2021; Garmone, 2020; NATO ACT, 2020; NATO 2030, 2021; Rynning, 2020, Vergun, 2019; 
Broeks, 2020.
In 2019, NATO issued new Political Guidance (PG19) for NATO adaptation in an unpredictable security 
environment, focusing on strengthening deterrence and defence, projecting stability and the fight against 
terrorism, investing in defence, and modernization, focused on military capabilities.
8 The EU has begun to influence the strengthening, building and integration of military capabilities in EU 
countries. Initiatives have been devised, such as Permanent Structured Cooperation (PESCO), the European 
Defence Fund (EDF), the Coordinated Annual Review on Defence (CARD), Military Planning and Conduct 
Capability (MPCC), and the European Defence Industrial Development Programme (EDIDIP). Open sources 
on the topic can be found at: EU Parliament (2019) and EU Council (2019).
9 The Strategy of the Military Defence of the Republic of Slovenia was issued in 1998 (Grizold, 2004), but focuses 
mainly on the military part of national defence, which is the most important part of military activities and 
strategy, yet only one of them.
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The SAF General Staff is the highest military expert body of the RS and is, as such, 
responsible for the development of military strategic thought, which supports the 
realization of national interests and goals, and guides the achievement of a proper 
state of preparedness and the efficient engagement of the SAF forces. As such, it has 
initiated and led the process of drafting the strategy proposal. The initiated process, 
however, must ensure the systematic development of military strategic thought 
from which the MS RS emerges, which offers a solid and modern starting point 
for the SAF’s functioning. Vuk (in Furlan, 2020) argues that strategic (military) 
thought in the SAF is relatively weakly present. Therefore, it is important to take 
into consideration how its military experts will perceive, unify and implement this 
process.
 2 THE PROCESS OF FORMING A MILITARY STRATEGY OF THE 
REPUBLIC OF SLOVENIA
Different scholars from strategy science like Žabkar, Vuk, Furlan agree that defence, 
especially its military part10, and the security of the RS are constant processes that 
cannot vary according to daily mood and spirit, but must be well planned and clearly 
defined in the strategy. A military strategy must be synchronized with other strategic 
documents. A good strategy systematically reduces the impact of uncertainty in 
decision-making and action processes. It examine, develop and anticipate the strategic 
environment to the extent that we can respond to a variety of security challenges 
effectively and in a timely manner. A military strategy substantiates the basis for 
military concepts, doctrines and plans, as well as basic military and defence planning 
documents. The strategy is the most important military document, since it defines 
why we have a military instrument of power, what goals it wants to achieve, and in 
what way. An important role in the formation of strategies is played by the process of 
creating, designing and writing them, which their content, feasibility, effectiveness 
and efficiency largely depend upon (Žabkar, 2003; Vuk, 2016; Furlan, 2020).
 2.1 Principles of devising the Military Strategy of the Republic of Slovenia
In the process of drafting the MS RS, the SAF followed a theoretical framework 
developed by Furlan (2020). It is also important to highlight Prochazaka's all twelve 
guiding principles of strategy formulation shown below were taken into account in 
the implementation of the strategy-making process.
1. The problem was identified – the changed security environment, the escalation of 
threats and security challenges, the need for adaptation and for systematization 
of thought, knowledge, experience and strategic solutions.
2. Transparency has been ensured – a process implementation team has been 
appointed; strategic communications have been included in the process from the 
very beginning, and a time limit and references have been defined. 
10   In accordance with the Defence Act of the Republic of Slovenia, the defence of the Republic of 
Slovenia is an indivisible whole consisting of the military and civil defence.
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3. Attempts were made to ensure the principle of interdisciplinarity – both officers 
and non-commissioned officers from various working levels and specialties have 
been appointed to the working group. In the future second phase of the strategy 
development process (after internal harmonization), external experts in the field 
of national security will be present. 
4. Objectivity was ensured – an analytical group was formed, and exercises were 
conducted to find and test the proposed solutions. 
5. The process was project-led – despite their regular work commitments, the 
planned number of key officers and non-commissioned officers took part in the 
strategy formulation process. 
6. Coherence was achieved gradually – the MS RS was placed in the hierarchy of 
documents, but at the beginning some decision-makers of the defence system 
had concerns with the importance of the military strategy. 
7. An alternative approach was enabled by the assessment of different solutions, 
especially in the context of decision-making exercises (Table Top Exercise 
(TTX)). 
8. The cost assessment has been made – through the provision of resources for the 
SAF defined in reference documents. 
9. MS RS objectives have been set – publicity; development; strengthening; 
unification and systematization of military strategic thought; building knowledge 
and experience; contribution to other documents; creating a starting point for the 
revision of other military documents, doctrines, plans; etc.
10. An implementation framework has been established – the main implementation 
elements have been determined and the identified resource-related modalities 
have been linked to resources and objectives. 
11. Indirectly, lessons learned have been taken into account – lessons learned from 
devising other strategic-level documents were indirectly taken into consideration. 
During the process, the analytical team accurately recorded the lessons learned.
12. Best practice – to a large extent theoretical and international strategy-making 
practice has been taken into account (Prochazaka, 2019 in Furlan, 2020).
  Strategic communications
Strategic communications is a sub-process within the MS RS formation process, 
which in terms of content complemented the aspect of the cognitive and non-kinetic 
dimensions of SAF activities. At the same time (more relevant to this article), 
the aim of integrating strategic communications into the entire process of the 
development of the MS RS was to uniformly achieve the desired communication 
effects with regard to the content and the MS RS devising process on the perception 
and behaviour of the selected target public. For the purposes of drafting the strategy 
strategic communications guidelines were developed, which sought to form a unified 
understanding of the need for the formation of the MS RS and why the RS needs 
it. Strategic communications provide a framework for the commonly accepted 
presentation of the strategy’s content and its effects to the internal and external 
environment, and help to balance the expectations of the national and strategic 
operating environment.
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 2.2 The basis of the Military Strategy of the Republic of Slovenia
  Initial guidelines
The Chief of the General Staff’s intent, which was written in the development vision, 
is clear. He wrote that the activities and efforts of all SAF members should focus on 
the development of a military strategy, which will be based on the ReSNV and the 
Defence Strategy of the RS. It must take into account other strategic documents in 
the area of national security and the newly adopted NATO and EU documents – the 
NATO military strategy, EU concepts, plans and guidelines, and a strategic analysis 
of the security environment and contemporary threats.
By order of the Chief of the General Staff, an Interim Group for the preparation of 
a draft MS RS was established in the SAF. The group consisted of more than 60 
different military, defence and security experts who were tasked with preparing a 
Draft Military Strategy of the Republic of Slovenia in a transparent manner and in a 
professionally planned and managed process, by 30 June 2021.
IDENTITY CARD OF MS RS
Proposer of the strategy: SAF
Approver: Minister of Defence
Holder of the MS RS: SAF General Staff
Signatory: Government of the RS
Time frame: 24 September 2020 – 31 July 2021
Participants: Administrative part of the MoD
Coordination: Interdepartmental
Type: Operational military strategy with development elements
Accessibility: Public text
  Placement of the military strategy in the hierarchy of strategic documents
As already mentioned, the strategy must be in line with national and international 
strategic documents in the field of defence and the military. The SAF is based on the 
Constitution of the Republic of Slovenia; the Defence Act (ZObr); the Resolution on 
the National Security Strategy of the RS (ResNV-2); the Defence strategy; and other 
strategic level documents11 affecting the functioning of the SAF. Based on the tasks 
from the ZObr and other guidance documents, the military strategy, which is the 
11 The study Hierarchy of Documents in the Field of National Security in the Republic of Slovenia from 1999 and 
the decisions of the Government of the Republic of Slovenia from 1999 and 2000, among other documents, 
define the strategy of military defence. In accordance with the ZObr and the ReSNV, the SAF, in addition to 
the key function of national military defence, also has other functions and thus a broader mission. This all 
together is the comprehensive matter of the MS RS. However, the military strategy must be complementary to 
the ReSDPRO SV, which is defined in the Rules on Planning in the MoD of the RS, as a guiding and planning 
document in the area of SAF development.
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skill and science of balancing military objectives, means, ways and methods of use, 
defines the achievement of the set objectives. The MS RS also takes into account the 
adopted NATO Military Strategy (and the documents implementing it), the NATO 
Joint Doctrine (AJP-01), and the emerging EU Strategic Compass.
It was decided by the MoD that the process of drafting the MS RS must take place 
simultaneously and in coordination with the drafting of the Resolution on the General 
Long-Term Programme of the Development and Equipping of the SAF (ReSDPRO) 
and the Medium-Term Defence Programme of the RS (SOPR), and must reflect 
the direction of the NATO and EU strategies. All this will enable the renewal and 
development of the operation plans of the SAF and provide adequate resources for 
strengthening and building the SAF's capabilities.
Process of devising the Military Strategy of the Republic of Slovenia and 
organization of work
The course of the individual phases of strategy formulation was defined while 
preparing the starting points for the MS RS, and registered in the Order for the 
Implementation of the Proposal Process of the MS RS (Order, 007-203/2020-1). 
Within the process of the formation and adoption of the MS RS, three phases were 
defined:12
1. Phase 1: Strategic consideration (September to December 2020).
2. Phase 2: Development of strategic thought (January to May 2021).
3. Phase 3: Formulation of the Military Strategy proposal (May to July 2021). 
The phase of creating starting points was not defined in the Order, so in this article 
we consider it a pre-phase. Phases 1 and 2 were conducted in a strictly confidential 
environment; however, the third phase, the harmonization and drafting of the MS 
RS, was unclassified, as the MS RS will be a public document. The completion 
of each phase is reported to the Chief of the General Staff to provide him with an 
overview of the situation. According to the report, the Chief of Defence (CHOD) 
provides guidelines and instructions for the further work of the MS RS preparation 
group. In practice, the development of strategic thought and the drafting of the MS 
RS already began in Phase 1, so in reality the phases overlapped.
The work was organized within five groups, each with its own specific content-
related task. The groups adjusted their methods and micro-timing according to the 
content, availability of personnel and expectations:
12 It should be noted that the process of creating a MS RS was underway when the Covid-19 epidemic was 
declared. All consultations, meetings, presentations and exercises were therefore carried out in compliance with 
the prescribed measures for the prevention of SARS-CoV-2 Covid-19 virus infection. This additionally impeded 
the work of the organizational team; however none of the participants caught the infection during the MS RS-
related activities related.
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1. The expert-coordinating group was tasked with the decision-making process 
and the presentation of the strategy to the internal professional public at the 
Ministry of Defence and later to the external public and the media. It consisted 
of the most senior SAF representatives, who were able to use their strategic-level 
competencies to formally and professionally design and direct the process of 
military strategic reflection and knowledge development.
2. The Blue Group consisted of strategic experts and decision-makers who, with 
their competencies in specific subject-matter areas, ensure a military professional, 
meaningful and coordinated search for the definition of solutions and the 
formulation of the emerging strategy and its systematic record. Their basic task 
was to unify military strategic thought, thus providing a solid basis for a clear 
military strategy. The group provided the necessary transfer and management of 
information and synchronized the work of the other groups.
3. The Yellow Group consisted of operational and strategic-level experts. They 
were tasked with ensuring the synchronization of strategic thought with the 
operational requirements, examining the security situation and the strategic 
environment, providing threat assessment, and identifying security risks and 
threats.
4. The Green Group consisted of representatives of the operational and tactical 
levels, whose competencies ensured the synchronization of strategic thought 
with the tactical requirements, and whose task is to define the strategic military 
objectives and their connection to the tactical level, and to approach the search 
for ways to operate and engage the SAF.
5. The Red Group consisted of representatives who used their knowledge, 
connections and careful planning skills to provide the necessary connections 
to the environment and various publics within and outside the SAF. They 
were in charge of implementing the strategic communications processes from 
the beginning of the strategy development process until the MS RS adoption 
and its further implementation. The group was tasked with ensuring the 
comprehensibility of the text and the message related to the content of the MS 
RS, as well as the processes of its implementation.
Individual members of these groups also participated in the expert-coordinating and 
expert-support groups. They were tasked with preparing substantive material for 
study and discussion, and exercises, discussions and seminars. The preparations were 
organizational, logistical and mostly contextual. They defined the main objectives, 
issues and dilemmas of the discussions. After seminars and exercises, which they 
organized and provided the substantive materials for (scenarios, vignettes, solutions 
and contents), conclusions and tasks for further work were designed and approved 
by the expert-coordinating group. The key task, and most demanding one, was to 
write down the solutions from the discussions that were the basis for drafting the 
proposed chapters. The chapter proposals were discussed by all the groups, and they 
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could send written suggestions on the proposals. The consolidated proposal of the 
full text was discussed three times in the Blue Group before the final approval13.
  Aim and purpose of the strategy
The purpose of the consideration and development of the MS RS is to define the 
concept, principles and idea of the SAF’s engagement as a defence force and as a 
key part of the military instrument of power, and to consolidate its military strategic 
thought and moral foundations.
Military professionals define and understand the SAF as an instrument of national 
power. Therefore, the purpose of the MS RS is to define the military strategic goals 
and the ways of achieving them with the military instrument of national power, thus 
contributing to the renewal and preparation of other strategic documents of the RS.
The aim of the MS RS is to determine the ways in which the SAF is engaged and used 
in pursuing the interests and goals of national (defence) security and in responding 
to sources of risks and threats to national security. As part of the introductory section 
of the formation of the MS RS, the desired final state was defined, which can be 
achieved by recording a realistic and feasible MS RS: the SAF is a credible military 
instrument of high reputation in Slovenian society’s domestic and international 
environment.
  Designing the MS RS contents outline
The MS RS contents outline followed the theory of the process of creating and 
formulating strategies. The created content sets served as the basis for the work 
of the groups and their content engagement, and later became an index of the 
strategy. The assessment and selection of the framework were carried out by the 
strategic decision-makers and by groups to which an individual thematic set of the 
contents was assigned. In addition to the foreword, introduction and conclusion, the 
proposal of the MS RS consists of six content sets: (1) Strategic Framework; (2) 
Military Security Environment: Threats and Risks; (3) Strategic Military Objectives; 
(4) Military Instrument of Power of the RS; (5) Deterrence and Military Defence 
Methods of the RS, and engagement of the SAF; (6) Imperatives of the development 
and engagement of the SAF.
 2.3 Phase one – strategic consideration, assessment
The process of extended discussions and deliberations began on 24 September 
2020 at the Kadetnica military facility in Maribor, with two-day consultation of the 
13 The blue group organized 10 consultations, while the other groups had even more. Additionally, two exercises 
by SAF strategic decision-makers and three mini-exercises and one extensive seminar of experts from the 
defence structures of the Republic of Slovenia were organized. More than 80 military, defence and national 
security experts participated in the strategy process. A small group in charge of writing spent more than 10,000 
hours in refining and formatting the text. Several presentations of the process and content of the MS RS have 
been given for various interested groups.
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SAF’s key personnel. In the first phase, a series of discussions, consultations and 
workshops were held, as well as a process of military-strategic reflection, focusing 
on defining the strategic and military environment, political and military ambitions, 
and the military instrument of power in both the narrower and broader sense.
The first two content sets of the index served as a framework for the MS RS and 
were carried out through discussions within the Blue Group on the basis of materials 
prepared by individuals14 and the Yellow and Green groups. This part of the process 
was classified as “secret”. The discussion of the selected topic at the level of the Blue 
group was followed by discussions at the level of the Yellow and Green groups. The 
Red group continuously monitored the flow of the discussions, informed the internal 
public about it, and organized presentations and meetings with stakeholders in the 
defence system. The first phase was followed by an analysis of the situation, where 
the military-strategic consideration was assessed. The formulated content and the 
set postulates were written down as a unified foundation for the continuation of the 
production of the MS RS.
Following the guidelines of the Blue Group, the Green Group examined the strategic 
environment and threats, as well as the documents defining the SAF’s goals and 
functions. In connection with this, the group defined the goals, sub-goals and 
activities that the military power should provide for the implementation of the basic 
tasks from the Constitution and the Defence Act.
The first phase of the process of drafting the MS RS was completed by recording 
the strategic military goals. The content was coordinated and approved at a meeting 
of SAF strategic leaders. The confirmed content of the first three sections was then 
presented to the working bodies and internal organizational units of the Ministry 
of Defence15. In principle, the strategy development process was accepted and 
supported. All undefined, uncoordinated topics were identified, such as protection 
of critical infrastructure, increase in defence forces, strategic logistics, and so on. 
The fact that the SAF and the administrative part of the MoD had difficulties in 
agreeing on the MS RS signing authority is of key importance for understanding the 
process of the MS RS formation. All the identified topics, perceived deviations in 
understanding, and open questions concerning the content and process of the strategy 
were recorded with the aim of them being resolved and coordinated in the second 
phase of the formation of the MS RS.
14 Experts from the SAF, specializing in strategy science, including Vuk (2020).
15 During the completion of the first phase the first findings, the contents of the first three sections and the process 
of drafting the MS RS were presented to: the Defence Policy Directorate, the Defence Affairs Directorate, 
the Logistics Directorate, the Intelligence and Security Service, the Secretariat of the Secretary-General, the 
Administration of the Republic of Slovenia for Civil Protection and Disaster Relief, the Defence Inspectorate of 
the Republic of Slovenia and, outside the MOD, to the Slovene Intelligence and Security Agency.
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 2.4 Second phase – development of military strategic thought
In the second phase the process continued, based on the situation analysis and the 
first three content sets, with the first exercise testing the already defined content 
to find solutions for bridging the gaps between the environment, ends, means and 
exploring possible working methods. The process focused on defining the use of 
the military instrument of power; conducting military activities in peacetime, crisis 
and war, including the cooperation and support of other departments; the support of 
and integration of the SAF into the national security system (including participation 
in the decision-making process); and identifying important strategic imperatives of 
the SAF’s development and warfare. The discussion of these topics was carried out 
sequentially, bottom up, in accordance with the set outline and the already defined 
goals, with the initial discussion at the level of the Green Group, followed by 
discussions at the level of the Yellow and Blue Groups16.
In the search for solutions through discussion, the key working method in this phase 
were the table-top exercises (TTX); one TTX at the beginning and one at the end 
of this phase. During the exercises, other stakeholders in the defence and security 
system were also included in the process of creating the MS RS. In addition, a 
full-day expert seminar with participants from the MoD and the SAF took place. 
Considering the needs of the process and the guidelines provided by the Chief of the 
General Staff, this phase included at least two consultations of each individual group. 
During these consultations, the groups focused on the substantive and procedural 
challenges in the formation of the MS RS.
A test of the risks and benefits of the MS RS content was carried out in the TTX, 
through discussions at working meetings of different strategy-making groups, and 
in numerous correspondence reflections of selected experts. The risks and benefits 
were sought by monitoring discussions and exercises, and were integrated into the 
organization of further work.
  Table top exercises – Kresnik
As part of the process of military strategic reflection and the formation of the MS RS, 
two TTXs were carried out, based on the Kresnik 2020 scenario17. The purpose of the 
16 The connecting element of writing the strategy in this and the next phase was a group of individuals, who 
provided the draft text of the strategy. The group refined each chapter, which had been written on the basis of 
discussions, findings and compromises, in terms of terminology, content and form. By doing this, they enabled a 
review of the text in the reverse hierarchy of the MS RS creation.
17 The Kresnik 2020 scenarios, which were used to enact exercises TTX 1 and 2, were created on the basis 
of knowledge of the strategic framework of the RS and its geographical strategic position, analysis and 
identification of threats to national and international security, and the way the opponents operate. The scenario 
was formed on the basis of realistic assumptions and taking into account the technological development and 
information environment of the SAF operation. The scenarios were complemented by various vignettes (the 
term vignette denotes an imaginary event that in a fictional situation requires some action and response and is 
a consequence of the development of the scenario). The participants responded to the vignettes in the form of 
discussions and expressions of opinion through pre-prepared questions asked by the exercise managers. These 
questions were a reflection of dilemmas or open questions in writing down the content of the strategy and its 
concepts.
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TTXs was to conduct an effective discussion and exchange the views and opinions 
of key SAF leaders in an effective way, with different views within the framework of 
strategic reflection based on the scenario.
The first exercise, in December 2020, was attended by 60 people from the Blue Group 
for the preparation of the MS RS, and invited individuals from the administrative part 
of the MoD and the SAF members supporting the exercise. In this way, an attempt 
was made to identify the gaps between the means and the goals, define the possible 
ways in which our defence forces should operate, and systematically write them 
down in the military strategy. The Exercise Director was the Chief of the General 
Staff of the SAF. His basic guidance was that the MS RS was to provide an answer to 
how the SAF will carry out its basic mission in the future, and to reflect the fact that 
the SAF is a military instrument of power.
During the exercises, working meetings and consultations of the formed groups were 
organised to prepare the contents. All the participants were aware of the importance 
of the process of creating a strategy, not only from a substantive point of view, but 
also from an educational point of view. In this context, and based on TTX-1, three 
additional mini TTX exercises were carried out. The participants in these TTXs 
were members of the Yellow and Green Groups, the Senior Officer Staff Course 
candidates, and the writers of the content part of the strategy. These three exercises 
enabled the testing of the comprehensibility of the defined solutions, the expansion 
of strategic thought within the SAF, and the identification of gaps in the solutions, 
as well as unifying the understanding of exposed strategic dilemmas between the 
strategic, operational and tactical levels. Additionally, it facilitated the expansion of 
knowledge of the reasons and need for developing a military strategy.
The final part of the second phase of strategy formulation was the implementation of 
TTX 2, carried out in March 2021. This exercise included all the groups involved in 
the strategy formulation process, thus enabling a two-level discussion, identification 
of solutions, decision-making, and detailed replay, as well as the testing of certain 
solutions. The operational and tactical parts were divided into ten project groups, 
which, according to the projects, presented solutions or responses to the vignettes 
from the scenario. Their starting points and suggestions were used by the strategic 
(Blue) group in their decision-making. The purpose of the exercise was to encourage 
discussion on the possible ways and methods under which the SAF could operate in 
order to achieve the set military strategic goals in a complex, hybrid, information 
environment in which we are already facing modern security challenges and 
threats. Experts from the Ministry of Defence also took part in the exercise, which 
enabled mutual discussion and a coordinated search for solutions within the overall 
response to ensure the defence of the Republic of Slovenia and the use of the SAF. 
The findings of the discussion served as a good basis for the quality continuation 
of the formation of military strategic thought, and the preparation of a proposal of 
the SAF’s contributions to the Resolution on General Long-Term Development and 
Equipping Programme of the SAF.
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The analysis of the findings, the results of the discussions, the highlighted topics and 
the accepted facts were monitored by the analytical and observatory groups, which 
had the exclusive task of recording during the exercises.
  Strategic seminar as part of the project of preparing the MS RS proposal
Based on the experience of the MS RS formation process and the implementation 
of the first TTX, areas were identified which would require in-depth knowledge and 
the appropriate exchange of information and procedures with other stakeholders in 
the national security system. A strategic seminar, in cooperation with representatives 
of various MoD bodies and the SAF, was therefore held. The topics discussed in 
more depth and coordinated between all the stakeholders at the seminar were the 
following: the national command and control system in crisis and war; the national 
command and control system immediately prior to and during collective defence; 
system and crisis response measures; threat assessment; the development of the 
SAF’s capabilities; growth in military and defence capabilities; the National Defence 
Plan; host nation support; protection of critical infrastructure and facilities of special 
importance; and the response to hybrid threats.
Each individual topic was presented by the administrative part of the MoD, which 
covered mainly the legal-formal aspect of the topic, and by the user (the SAF), 
which presented the topic from the user’s perspective and the perspective of practical 
experience. The topics were presented in sets, between which it was possible to 
initiate discussion and coordinate opinions. The remaining dilemmas and open 
questions were postponed until the gaming and discussion during TTX-2. The 
findings, compromises and provided solutions represented the basis for the definition 
of the second part of the MS RS content proposal. In this phase, the risks of feasibility 
and the substantive inadequacy of the MS RS were identified. 
 2.5 Phase three: design of the text proposal of the MS RS
In the third phase, on the basis of the substantive material prepared in the previous 
phases, the writing and drafting of the proposal of the MS RS continued. The 
preparation of the proposal was carried out by an expert support group, which carried 
out the process through the coordination of the strategy proposal at all three levels. 
The individuals responsible for particular sections and content were designated, as 
well as a subgroup which was to compile the first drafts of the complete text. These 
drafts went through at least three coordination meetings in the Blue group, with the 
support of the other groups.
In cooperation with Slovene language specialists and terminologists, the group 
harmonized the terminology and arranged proofreading. An English translation of 
the text was provided by the translators. Additionally, two attachments to the MS 
RS were prepared: an explanation of terms, and a terminology glossary of the basic 
resources used in the MS RS. The MS RS draft in its current version represents the 
proposal draft for the Minister of Defence of the Republic of Slovenia.
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According to the plans, the final proposal of the strategy can, at this stage, also be 
presented to the wider professional and other public. However, in accordance with 
the guidelines of the MoD, it was necessary to take this phase slower in order to 
harmonize the MS RS timetable and content with ReSDPRO.
 3 LESSONS LEARNED FROM THE PROCESS OF DEVISING THE MS RS
The evaluation of the performance, usefulness and content acceptability of the MS 
RS was a regular, continual process in the formation of the strategy. The process of 
creating the strategy was monitored by the analytical group in the strategic decision-
making exercises. Feedback and (dis)satisfaction with the process and new proposals 
were sought by conducting surveys of the TTX participants. Minutes of the group's 
findings and conclusions were also written at all the consultations of the Blue group.
 3.1 Evaluation of the performance, usefulness and content 
  Findings of the survey analysis
During the process of developing the MS RS, three surveys were conducted with 
approximately 40 respondents who participated in the TTX or strategic seminar18. 
The key findings are described below:
The process of strategy drafting, the exercises and the discussion at the TTX were 
identified by the respondents as very useful, because they enabled a unique process 
of learning the development of military thought and military decision-making. A 
large proportion of the respondents believed that the process contributed to personal 
professional development in terms of broader military strategic thinking and 
decision-making. 
It was considered to be an excellent opportunity for an exchange of expert opinions 
on the topic of military strategic thought, since all the participants had the option 
to participate in the discussion, and all were encouraged to contribute. They found 
that the exercises provided important guidelines and starting points for further work 
on the strategy; enabled the verification of the SAF's methods of operation and use; 
indicated gaps, especially capability-related ones; and revealed gaps between the 
actual and the recorded existing situation, and the relevant solutions. The exercises 
provided a very good starting point for further work and decision-making. The 
integration of the civilian and military perspectives was recognized as important in 
the exercises and consultations, because only in this way can a suitable environment 
for a comprehensive approach be created. The vast majority of participants identified 
the exercises and the process as a cost-effective and useful form of training. The 
discussion helped to confirm the strategic goals and unify the understanding of the 
participants of the exercise. Very quickly, it hinted at the gaps in our system. Most of 
all, it showed the different perceptions of the strategic environment, decision-makers 
18 All surveys are archived in the SAF HQ.
David Humar, Nina Raduha
 83 Sodobni vojaški izzivi/Contemporary Military Challenges
and, above all, strategic considerations, and at the same time put them over a common 
denominator. 
Instead of a conclusion, a quote from one of the surveys: »In the given circumstances, 
the chosen way of working certainly means a quantum leap in the approach to 
long-term planning in the SAF«.
  Weaknesses identified in the surveys and the given suggestions
The discussion did not take sufficient account of new technology and the development 
of new systems. Solutions were sought mainly in the increasing numbers in the SAF 
and their capabilities, not in the prioritization of tasks or new technologies. Too 
much emphasis was placed on the modes of operation that support the SAF’s non-
priority tasks. It is necessary to continue with exercises for the leaders to unify and 
game through the worst-case scenarios.
There was a gap between the highlights of the strategic seminar and the differences 
in the perception of the future between the administrative part of the MoD and the 
SAF, and the ways of operation defined by the MS RS. In the future, it will be 
necessary to ensure the presence of other stakeholders in the national security system 
and other government departments responsible for national security in discussions 
and exercises. There was also a critical remark that the exercises were somewhat 
one-sidedly focused on the land part of military operations.
There should be more interaction between individual exercise groups. The TTXs 
should include fewer vignettes and provide more time for discussion. Even though 
the exercises were well set out, it was not possible to clearly conclude from the 
discussion what the ways of operation were supposed to be. The debaters opened 
up too many dilemmas and provided too few focused solutions. A TTX is especially 
useful when looking for answers to the question of “how”; of course, it will also be 
necessary to find the answer to the question “with what”.
  Findings of the analytical group19
The key task of the analytical group was to extract the content important for the 
writing of the MS RS, in terms of content elements, dilemmas, and offered solutions, 
from the exercise and the discussions. The analytical group set up an analytical model 
for the assessment and findings of the discussion in the frame of the exercise scenario. 
They monitored the given responses to the vignettes in accordance with military 
strategic objectives, ways of operation and other categories listed as objectives of 
the TTX. The content of the work of the analytical group is reflected in the content 
of the MS RS. In this respect, it is worth highlighting five facts: (1) In addition to 
the development of the MS RS, it is necessary to prepare a glossary of terms with 
definitions in order to ensure uniform understanding and terminological consistency; 
19 All data, monitoring matrix and findings are archived in the SAF HQ.
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(2) The topics that were most discussed within the framework of the scenario and 
vignettes of the exercise were the following: increased strength of forces; scope and 
structure; the importance of strategic communications and its capabilities, and threat 
assessment; (3) The discussions during the exercise clearly showed that the exercise 
participants were aware of the challenges in achieving the defined military strategic 
objectives; (4) The idea of a defence staff was identified and supported; (5) It would 
be sensible to carry out exercises and processes of a similar type in the SAF in 
the future, and to plan them in a complementary manner with regard to other SAF 
exercises, training events and activities, as they represent an extremely suitable tool 
for an exchange of views and opinions between leaders.
The purpose of both the exercises and the process of formation of the MS RS was 
achieved, as it effectively illuminated strategic dilemmas from various perspectives 
within military strategic consideration, enabled an exchange of views and solutions, 
and thus strengthened group awareness of key challenges.
Innovations and highlights introduced by the MS RS and the challenges arising 
from it
The MS RS introduces important innovations that redefine the SAF’s main effort. 
Among other things, the MS RS emphasizes  that the SAF is the main authority 
in charge of combat activities in the RS in all combat domains and dimensions. It 
defines the SAF as the main part of the military instrument of power20. It defines the 
deterrence posture as the SAF’s priority, both in independent activities and within 
NATO and the EU. It identifies the ways of deterrence and military defence of the 
RS, and the engagement of the SAF. It connects the resources and goals of the RS 
in the field of defence with the methods of implementing it. Part of this is also the 
concept of increasing military forces in case of need. This is an upgrade of the current 
concept of a military strategic reserve.
The MS RS also highlights other important, often under-emphasized concepts and 
ideas. It makes it clear that the RS and its people are the centre of military defence, 
and that individuals and their perception are key to ensuring security. It states that 
in today’s security environment, military threats are mostly related to or are even 
an integral part of other threats and will be carried out below the threshold of war, 
which can upset the balance and directly threaten peace, security and stability in 
Europe. It puts a special emphasis on hybrid warfare and highlights the importance 
of non-physical factors and the impact of technology development in ensuring 
security in a modern security environment. Military action is extended to all domains 
20 The DIME methodology was developed by U.S. Department of Defence academics and experts in 2005 as an 
acronym for describing the various powers of the state (DoD, 2005). The traditional instruments of national 
power of the state externally are: Diplomacy, Information, Army, Economy (DIME - Diplomacy, Information, 
Military, and Economy). Morgenthau (1995: 220) argues that military power gives the other instruments of 
national power real significance for the overall power of the state. Furlan makes similar claims in his textbook 
on strategy (Furlan, 2020, 2021). Total national strength is the product of the strength of individual instruments. 
DIME is also defined in NATO AJP-01. 
David Humar, Nina Raduha
 85 Sodobni vojaški izzivi/Contemporary Military Challenges
and dimensions, within the framework of a comprehensive and integrated approach, 
with the participation of all instruments of power of the state and its citizens in 
responding to modern security challenges. It emphasizes that the RS manages its 
military posture together with NATO and within the EU. In extreme situations, the 
RS will also defend itself independently and, if necessary, unconventionally. The 
RS will play an active role in NATO and the EU and will responsibly assume its 
obligations in these two organizations.
The introduction of these innovations and the emphasis on the neglected ideas of 
the MS RS could, in the event of inconsistencies at the level of the national security 
system, lead to certain disagreements. At the same time, these facts and the introduced 
innovations confirm the thesis that the RS needs a national military strategy if it 
wants the SAF to continue to perform its legally determined tasks successfully and 
efficiently. Failure to achieve its military strategic goals will also increase the risks 
involved in preserving the fundamental values of Slovenian society and our way of 
life, as well as protecting and defending our national interests and goals.
There are risks associated with personnel, sustainable financing, and challenges 
within the SAF and between the SAF and the MoD. The SAF has the ambition to 
minimize these risks. Although in accordance with the Constitution and the Defence 
Act the SAF is a defence force of the RS, it does not represent the entire military 
instrument of power of the RS. Even generally, warfare is the responsibility of 
the state, with all its instruments of power, not just the military. The SAF, as the 
competent body responsible for combat and thus the carrier of combat in warfare 
and a key part of warfare, will propose the draft MS RS. With regard to the fact 
that warfare and combat are the basic forms of the SAF’s activities, the SAF will 
also take into account other aspects of engagement, such as international military 
operations and missions in peacetime, ensuring readiness, and support to other state 
bodies and the protection and rescue system.
Do the RS and the SAF need the MS RS? The theoretical framework and research 
findings in the article can fully confirm  the hypothesis from the beginning of the 
article – the RS and the SAF need the MS RS, which should be developed in the 
process of military strategic thought synchronized with defence and national security 
thought and adopted at the level of the Government of the RS. 
The answers to individual research questions are offered by a case study and in the 
content of the MS RS sections. They are summarized below:
 – There were no peculiarities in the production of the MS RS with respect to the 
theory. The process of the draft MS RS formation played a key role in its creation. 
This ensured the systematic development of military strategic thought and its 
harmonization with the basic documents in the field of defence. As such, it offers 
a sufficiently solid and modern starting point for the engagement and use of the 
SAF. The content is based on the expectations of the national security system, the 
THE PROCESS OF DEVISING THE MILITARY STRATEGY OF THE REPUBLIC OF SLOVENIA 
Conclusion 
 86 Sodobni vojaški izzivi/Contemporary Military Challenges
military profession, and Slovenian military thought. According to our analysis of 
the MS RS process we can see that strategic communications and coordination 
within the defence and national security system needed to be commenced earlier, 
even before a pre-phase.
 – The development of the SAF and military defence in the 30 years of independence 
followed more development of the organizational point of view (from mandatory 
service and reserve to all volunteer professional forces), which did not develop 
the full range of military forces and the fulfilment of obligations in the RS defence 
system and to NATO and the EU. Such a mode of operation dictated the use of 
individual military forces and not the SAF as a whole, so there was no urgent need 
to develop ways of operating and using the SAF as a whole. The development of 
the SAF has brought us to the point where we are able to use the SAF as a whole, 
and the security situation also requires it, so the MS RS is very timely.
 – In the process of drafting the MS RS proposal, the SAF strengthened and 
systematized military strategic thought. Thus, the SAF is now much better prepared 
to be involved in strategic processes at the national level and in NATO and the EU. 
Interdepartmental coordination of the MS RS is definitely needed. The question 
is whether it was necessary to start it at the time of the formation of the MS RS 
within the SAF. A further question is whether the process of drafting the proposal 
of the MS RS could have been better used for the creation of ReSDPRO SAF.
 – The MS RS is one of the foundation documents of the SAF, on the basis of which 
it builds its character and ways of operation and engagement in the national 
security system and within the obligations accepted by the RS in NATO, the EU 
and other international alliances. The MS RS was designed taking into account 
the national strategic documents in the field of security and defence of the RS and 
allied strategies, concepts, plans, guidelines and strategic analyses of the security 
environment and modern threats. The MS RS therefore defines cooperation with 
and use of NATO and EU mechanisms for ensuring the military strategic goals of 
the RS, especially through NATO deterrence and collective defence and the EU 
CSDP.
 – Finally the MS RS, as a document, can contribute to the desired SAF positioning 
in the state’s and society’s structure, i.e. for the SAF to be recognized as a credible 
part of the instrument of national power both at home and abroad, while enjoying 
a high reputation in Slovenian society.
The MS RS is the most senior national document in the field of the military. It defines 
the SAF as the most important part of the military instrument of state power, and 
makes its role and engagement concrete. The envisaged implementation of the MS 
RS is based on the basic principles of democratic civilian control over the armed 
forces, with decisions on the defence policy of the RS and the development and use 
of military forces being made by the Government of the RS.
The MS RS will serve as the basis for the development of a military instrument of 
power and its functioning, which must be prepared to implement a deterrence posture 
and national and collective defence within NATO and/or the EU, and to strengthen 
David Humar, Nina Raduha
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 87 Sodobni vojaški izzivi/Contemporary Military Challenges
the resilience of the society as a whole. This strategy will only be able to have its 
greatest impact if everyone agrees on its context and while providing the necessary 
resources, which must be sufficient, predictable, and stable in the long term. Time 
will tell whether the MS RS will work, but it is already obvious that in the process of 
drafting the military strategy, the strengthening of military strategic thought has been 
unified and systematized, and process was cost effective.
The fact remains that the General Staff of the SAF is the only competent body in 
the RS on the use of military force. The draft MS RS developed in the SAF military 
process described in this article offers a sufficiently solid and modern starting point 
for the operation and engagement of the SAF. Now the draft MS RS is ready for 
intergovernmental coordination, public presentation, and finally for approval by the 
Government of the RS.
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