Text File

NATO handbook04 uploaded March 25, 1993

PART II

THE FUTURE ROLE OF THE ALLIANCE

24. AN ERA OF POLITICAL CHANGE

The 4th of April 1989, which marked the fortieth anniversary of the signing of the North Atlantic Treaty, coincided with the beginning of a period of profound change in the course of East-West and international rela- tions.

The following paragraphs briefly describe the origins and course of those developments, the progress achieved towards the realisation of many of the long-standing goals of the Alliance, and the principal issues of concern facing member countries as they adapt their policies and shape their common institutions to meet the challenges of the new security environment.

The roots of the changes which have transformed the political map of Europe can be traced to a number of developments during the 1960s and 1970s which were to have far-reaching implications. While there were many aspects to these developments, three events stand out in particular, namely the adoption in December 1967 of the Harmel doctrine based on the parallel policies of maintain- ing adequate defence while seeking a relaxation of ten- sions in East-West relations; the introduction by the Government of the Federal Republic of Germany in 1969 of Chancellor Willi Brandt's ``Ostpolitik'', designed to bring about a more positive relationship with Eastern European countries and the Soviet Union within the constraints imposed by their governments' domestic poli- cies and actions abroad; and the adoption of the CSCE Helsinki Final Act in August 1975, which established new standards for the discussion of human rights issues and introduced measures to increase mutual confidence between East and West.

A series of similarly important events marked the course of East-West relations during the 1980s. These included NATO's deployment of INF missiles (Inter- mediate Range Nuclear Forces) in Europe following the December 1979 double-track decision on nuclear modernis- ation and arms control; the subsequent Washington Treaty signed in December 1987, which brought about the elimination of US and Soviet land-based INF missiles on a global basis; early signs of change in Eastern Europe associated with the emergence and recognition, despite later setbacks, of the independent trade union movement ``Solidarity'' in Poland in August 1980; the consequences of the December 1979 Soviet invasion of Afghanistan and the ultimate withdrawal of Soviet forces from Afghanistan in February 1989; and the March 1985 nomination of Mikhail Gorbachev as General Secretary of the Soviet Communist Party.

In March 1989, in the framework of the CSCE, promis- ing new arms control negotiations opened in Vienna involving the 23 countries of NATO and the Warsaw Treaty Organisation on reductions in conventional forces in Europe (CFE). The NATO Summit Meeting held in Brussels at the end of May 1989 against this background was of particular significance. Two major statements of Alliance policy were published, namely a declaration marking the fortieth Anniversary of the Alliance, setting out goals and policies to guide the Allies during the fifth decade of their cooperation; and a Comprehensive Con- cept of Arms Control and Disarmament.

The Summit Declaration contained many extremely important elements. It recognised the changes that were underway in the Soviet Union as well as in other Eastern European countries and outlined the Alliance's approach to the overcoming of the division of Europe and the shaping of a just and peaceful European order. It reiterated the need for credible and effective deterrent forces and an adequate defence and endorsed President Bush's arms control initia- tive calling for an acceleration of the CFE negotiations in Vienna and for significant reductions in additional catego- ries of conventional forces, as well as in United States and Soviet military personnel stationed outside their national territory. The Declaration set forth a broad agenda for expanded East/West cooperation in other areas, for action on significant global challenges and for measures designed to meet the Alliance's long-term objectives.

Developments of major significance for the entire European continent and for international relations as a whole continued as the year progressed. By the end of 1989 and during the early weeks of 1990, significant progress had been made towards the reform of the politi- cal and economic systems of Poland and Hungary; and in the German Democratic Republic, Bulgaria, Czechoslova- kia and, after a bitter struggle, Romania, steps had been taken towards freedom and democracy which went far beyond short-term expectations.

The promise held out for over 40 years to bring an end to the division of Europe and with it an end to the division of Germany took on real meaning with the opening of the Berlin Wall in November 1989. Beyond its fundamental symbolism, the member countries of the Alliance saw this event as part of an inevitable process leading to a Europe whole and free. The process was as yet far from complete and faced numerous obstacles and uncertainties, but rapid and dramatic progress had never- theless been achieved. Free elections had taken place or were planned in most Central and Eastern European countries, former divisions were being overcome, repres- sive border installations were being dismantled and, within less than a year, on 30 October 1990, the unifica- tion of the two German states took place with the assent of the Soviet Government on the basis of an international treaty and the democratic choice of the German people.

Both the fact and the prospect of reform brought about major positive changes in the relationships of Central and Eastern European countries with the inter- national community, opening up a new and enriched dialogue involving East and West, which offered real hope in place of the prospect of confrontation, and practical proposals for cooperation in place of polemics and the stagnation of cold war politics.

Such changes were not accomplished without difficulty and, as events within the former Soviet Union and other parts of Central and Eastern Europe confirmed, created new concerns about stability and security. The bold course of reforms within the Soviet Union itself led to new challenges as well as severe internal problems. More- over the dire economic outlook and the major difficulties experienced in many of the countries of Central and Eastern Europe in managing the transition from authori- tarian government and a centrally planned economy to pluralist democracy and a free market combined to make political forecasting uncertain and subject to constant revision.

Throughout this period NATO continued to play a key role, providing the framework for consultation and coordi- nation of policies among its member countries in order to diminish the risk of a crisis arising which could impinge on common security interests. The Alliance pursued its efforts to remove military imbalances; to bring about greater openness in military matters; and to build confi- dence through radical but balanced and verifiable arms control agreements, verification arrangements and in- creased contacts at all levels.

At the Summit Meeting in London in July 1990, in the most far-reaching Declaration issued since NATO was founded, the Heads of State and Government announced major steps to transform the Alliance in a manner commen- surate with the new security environment and to bring con- frontation between East and West to an end. They extended offers to the governments of the Soviet Union and Central and Eastern European countries to establish regular diplo- matic liaison with NATO and to work towards a new relationship based on cooperation. The Declaration had been foreshadowed a month earlier when NATO Foreign Ministers met in Scotland and took the exceptional step of issuing a ``Message from Turnberry'', extending an offer of friendship and cooperation to the Soviet Union and all other European countries. The announcement made by President Gorbachev in July 1990, accepting the par- ticipation of the united Germany in the North Atlantic Alliance, was explicitly linked to the nature of this Message and to the substantive proposals and commit- ments made by Alliance governments in London.

The London Declaration included proposals to develop cooperation in numerous different ways. Leaders and representatives of Central and Eastern European coun- tries were invited to NATO Headquarters in Brussels. Many such visits took place. Arrangements for regular contacts at the diplomatic level were made. The Secretary General of NATO also visited Moscow immediately after the London Summit Meeting to convey to the Soviet leadership the proposals contained in the Declaration and the Alliance's determination to make constructive use of the new political opportunities opening up.

A joint declaration and commitment to non-aggression was signed in Paris in November 1990 at the same time as the Treaty on Conventional Forces in Europe and the publication, by all CSCE member states, of the Charter of Paris for a New Europe. The Joint Declaration formally brought adversarial relations to an end and reaffirmed the intention of the signatories to refrain from the threat or use of force against the territorial integrity or political independence of any state, in accordance with the pur- poses and principles of the UN Charter and the Helsinki Final Act. All other states participating in the CSCE were invited to join this commitment. New military contacts were established, including intensified discussions of mili- tary forces and doctrines. Progress was made towards an ``Open Skies'' agreement, permitting overflights of national territory on a reciprocal basis in order to increase confidence and transparency with respect to military activities. Further talks were initiated to build on the CFE Treaty on reductions of conventional forces from the Atlantic to the Ural Mountains, including additional measures to limit manpower in Europe. Agreement was reached to intensify the CSCE process and to set new standards for the establishment and preservation of free societies. Measures were taken to enable the CSCE pro- cess, which has been successful in enhancing mutual con- fidence, to be further institutionalised in order to provide a forum for wider political dialogue in a more united Europe. Internally, NATO carried out a far-reaching review of its strategy in order to adapt it to the new cir- cumstances.

Despite the positive course of many of these develop- ments, new threats to stability can arise very quickly and in unpredictable circumstances, as the 2 August 1990 Iraqi invasion of Kuwait and subsequent developments in the Gulf area demonstrated. NATO countries used the Alliance forum intensively for political consultations from the outbreak of this crisis. They played a prominent role in support of United Nations efforts to achieve a diplo- matic solution and reiterated their commitment under Article 5 of the North Atlantic Treaty in the event of an external threat to Turkey's security developing from the situation in the Gulf. Elements of NATO's Allied Mobile Force were sent to Turkey in order to demonstrate this commitment.

Significantly, the unity of purpose and determined op- position by the international community to the actions taken by Iraq offered positive evidence of the transform- ation which had taken place in relations between the Soviet Union and the West. The benefits resulting from the establishment of better contacts and increased cooper- ation between them were clearly apparent. The dangers inherent in the Gulf crisis reinforced the Alliance's deter- mination to develop and enhance the level of its cooper- ation with the countries of Central and Eastern Europe as well as with other countries in accordance with the goals set by Alliance Heads of State and Government in the London Declaration.

This determination was further reinforced by the events of 1991, including the repressive steps taken by the Soviet Government with regard to the Baltic states prior to conceding their right to establish their own independence; the deteriorating situation and outbreak of hostilities in Yugoslavia, leading to the break-up of the Yugoslav Federation; and the attempted coup d'etat in the Soviet Union itself which took place in August.

Against the background of these events, 1991 was marked by an intensification of visits and diplomatic contacts between NATO and the countries of Central and Eastern Europe in accordance with the decisions taken by NATO Heads of State and Government in London. With the publication of the Rome Declaration in Novem- ber 1991, the basis was laid for placing their evolving relationship on a more institutionalised footing. The estab- lishment of the North Atlantic Cooperation Council in December, bringing together the member countries of NATO and, initially, nine Central and Eastern European countries in a new consultative forum, was a direct conse- quence of this decision.

The inaugural meeting of the North Atlantic Cooper- ation Council took place on 20 November 1991, just as the Soviet Union was ceasing to exist. Eleven former Soviet republics became members of the new Common- wealth of Independent States, entering a period of intense political and economic transformation. In Nagorno-Kara- bakh, Armenia and Azerbaijan, Georgia and elsewhere, outbreaks of violence occurred and serious inter-state tensions developed.

The deteriorating situation, continuing use of force and mounting loss of life in the territory of the former Yugoslavia were further major causes of concern which marred the prospects for peaceful progress towards a new security environment in Europe. Both the North Atlantic Council and the North Atlantic Cooperation Council endeavoured to support efforts undertaken in other forums to restore peace and to bring their own influence to bear on the parties concerned.

In March 1992 participation in the North Atlantic Cooperation Council was expanded to include all mem- bers of the Commonwealth of Independent States and by June 1992 Georgia and Albania had also become mem- bers.

During the same period, discussion of measures de- signed to strengthen the role of the CSCE in promoting stability and democracy in Europe, including proposals outlined in the Rome Declaration issued by the Alliance, culminated in the signature of the 1992 Helsinki Document (``The Challenges of Change'') at the CSCE Summit Meet- ing in July 1992. The document describes, inter alia, new initiatives for the creation of a CSCE forum for security cooperation and for CSCE peace-keeping activities, for which both the North Atlantic Council and the North Atlantic Cooperation Council have expressed full support.

At the November 1991 Summit Meeting in Rome, the Alliance also published its new Strategic Concept. This is based on a broad approach to security and sets out the principles and considerations which determine the future role of the Alliance and the transformation of its struc- tures needed to enable it to fulfil its continuing tasks and to play its full role, in cooperation with other inter- national institutions, in Europe's future security.

The key elements of the Rome Declaration and the principal orientations of the Strategic Concept are out- lined in the following sections.

25. THE NEW SECURITY ARCHITECTURE

The institutional basis for managing Europe's future secu- rity set out in the Rome Declaration takes as its starting point the fact that the challenges facing the new Europe cannot be comprehensively addressed by one institution alone. They require a framework of interlocking institu- tions, tying together the countries of Europe and North America in a system of inter-relating and mutually sup- porting structures. The Alliance is therefore working towards a new European security architecture which seeks to achieve this objective by ensuring that the roles of NATO, the CSCE, the European Community, the West- ern European Union and the Council of Europe are complementary. Other regional frameworks of cooper- ation can also play an important part. Preventing the instability and divisions which could result from causes such as economic disparities and violent nationalism depends on effective interaction between these various elements.

The North Atlantic Alliance and the steps taken by the Alliance in the framework of the North Atlantic Cooper- ation Council are fundamental to this process. The Alliance itself is the essential forum for consultation among its members and is the venue for reaching agree- ment on and implementing policies with a bearing on their security and defence commitments under the North Atlantic Treaty. However, as the evolution of Europe's new security architecture progresses, the Alliance is developing practical arrangements, along with the other institutions involved, to ensure the necessary transparency and complementarity between them. This includes closer contacts and exchanges of information and documenta- tion between the institutions themselves, as well as recipro- cal arrangements regarding participation and representa- tion in appropriate meetings.

26. A BROAD APPROACH TO SECURITY

The Alliance has always sought to achieve its over-riding objectives of safeguarding the security of its members and establishing a just and lasting peaceful order in Europe through both political and military means. This comprehen- sive approach remains the basis of the Alliance's security policy. However, in the new security situation, the chances of achieving these objectives by political means, as well as taking into account the economic, social and environ- mental dimensions of security and stability, are better than ever before. The Alliance's active pursuit of dialogue and cooperation, underpinned by the commitment to an effective collective defence capability and to building up the institutional basis for crisis management and conflict prevention, therefore has the following key objectives: to reduce the risk of conflict arising out of misunderstanding or design; to build increased mutual understanding and confidence among all European states; to help manage crises affecting the security of the Allies; and to expand the opportunities for a genuine partnership among all European countries in dealing with common security problems.