Select Committee on Defence Third Special Report

ANNEX B

The North Atlantic Alliance's Strategic Concept

Approved by the Heads of State and Government participating in the meeting of the North Atlantic Council in Washington D.C. on 23rd and 24th April 1999

Introduction

1.At their Summit meeting in Washington in April 1999, NATO Heads of State and Government approved the Alliance's new Strategic Concept.

2.NATO has successfully ensured the freedom of its members and prevented war in Europe during the 40 years of the Cold War. By combining defence with dialogue, it played an indispensable role in bringing East­West confrontation to a peaceful end. The dramatic changes in the Euro­Atlantic strategic landscape brought by the end of the Cold War were reflected in the Alliance's 1991 Strategic Concept. There have, however, been further profound political and security developments since then.

3.The dangers of the Cold War have given way to more promising, but also challenging prospects, to new opportunities and risks. A new Europe of greater integration is emerging, and a Euro­Atlantic security structure is evolving in which NATO plays a central part. The Alliance has been at the heart of efforts to establish new patterns of cooperation and mutual understanding across the Euro­Atlantic region and has committed itself to essential new activities in the interest of a wider stability. It has shown the depth of that commitment in its efforts to put an end to the immense human suffering created by conflict in the Balkans. The years since the end of the Cold War have also witnessed important developments in arms control, a process to which the Alliance is fully committed. The Alliance's role in these positive developments has been underpinned by the comprehensive adaptation of its approach to security and of its procedures and structures. The last ten years have also seen, however, the appearance of complex new risks to Euro­Atlantic peace and stability, including oppression, ethnic conflict, economic distress, the

collapse of political order, and the proliferation of weapons of mass destruction.

4.The Alliance has an indispensable role to play in consolidating and preserving the positive changes of the recent past, and in meeting current and future security challenges. It has, therefore, a demanding agenda. It must safeguard common security interests in an environment of further, often unpredictable change. It must maintain collective defence and reinforce the transatlantic link and ensure a balance that allows the European Allies to assume greater responsibility. It must deepen its relations with its partners and prepare for the accession of new members. It must, above all, maintain the political will and the military means required by the entire range of its missions.

5.This new Strategic Concept will guide the Alliance as it pursues this agenda. It expresses NATO's enduring purpose and nature and its fundamental security tasks, identifies the central features of the new security environment, specifies the elements of the Alliance's broad approach to security, and provides guidelines for the further adaptation of its military forces.

Part I ­ The Purpose and Tasks of the Alliance

6.NATO's essential and enduring purpose, set out in the Washington Treaty, is to safeguard the freedom and security of all its members by political and military means. Based on common values of democracy, human rights and the rule of law, the Alliance has striven since its inception to secure a just and lasting peaceful order in Europe. It will continue to do so. The achievement of this aim can be put at risk by crisis and conflict affecting the security of the Euro­Atlantic area. The Alliance therefore not only ensures the defence of its members but contributes to peace and stability in this region.

7.The Alliance embodies the transatlantic link by which the security of North America is permanently tied to the security of Europe. It is the practical expression of effective collective effort among its members in support of their common interests.

8.The fundamental guiding principle by which the Alliance works is that of common commitment and mutual co­operation among sovereign states in support of the indivisibility of security for all of its members. Solidarity and cohesion within the Alliance, through daily cooperation in both the political and military spheres, ensure that no single Ally is forced to rely

upon its own national efforts alone in dealing with basic security challenges. Without depriving member states of their right and duty to assume their sovereign responsibilities in the field of defence, the Alliance enables them through collective effort to realise their essential national security objectives.

9.The resulting sense of equal security among the members of the Alliance, regardless of differences in their circumstances or in their national military capabilities, contributes to stability in the Euro­Atlantic area. The Alliance does not seek these benefits for its members alone, but is committed to the creation of conditions conducive to increased partnership, cooperation, and dialogue with others who share its broad political objectives.

10.To achieve its essential purpose, as an Alliance of nations committed to the Washington Treaty and the United Nations Charter, the Alliance performs the following fundamental security tasks:

Security: To provide one of the indispensable foundations for a stable Euro­Atlantic security environment, based on the growth of democratic institutions and commitment to the peaceful resolution of disputes, in which no country would be able to intimidate or coerce any other through the threat or use of force.


Consultation: To serve, as provided for in Article 4 of the Washington Treaty, as an essential transatlantic forum for Allied consultations on any issues that affect their vital interests, including possible developments posing risks for members' security, and for appropriate co­ordination of their efforts in fields of common concern.


Deterrence and Defence: To deter and defend against any threat of aggression against any NATO member state as provided for in Articles 5 and 6 of the Washington Treaty.

And in order to enhance the security and stability of the Euro­Atlantic area:

Crisis Management: To stand ready, case­by­case and by consensus, in conformity with Article 7 of the Washington Treaty, to contribute to effective conflict prevention and to engage actively in crisis management, including crisis response operations.


Partnership: To promote wide­ranging partnership, cooperation, and dialogue with other countries in the Euro­Atlantic area, with the aim of increasing transparency, mutual confidence and the capacity for joint action with the Alliance.

11.In fulfilling its purpose and fundamental security tasks, the Alliance will continue to respect the legitimate security interests of others, and seek the peaceful resolution of disputes as set out in the Charter of the United Nations. The Alliance will promote peaceful and friendly international relations and support democratic institutions. The Alliance does not consider itself to be any country's adversary.

Part II ­ Strategic Perspectives

The Evolving Strategic Environment

12.The Alliance operates in an environment of continuing change. Developments in recent years have been generally positive, but uncertainties and risks remain which can develop into acute crises. Within this evolving context, NATO has played an essential part in strengthening Euro­Atlantic security since the end of the Cold War. Its growing political role; its increased political and military partnership, cooperation and dialogue with other states, including with Russia, Ukraine and Mediterranean Dialogue countries; its continuing openness to the accession of new members; its collaboration with other international organisations; its commitment, exemplified in the Balkans, to conflict prevention and crisis management, including through peace support operations: all reflect its determination to shape its security environment and enhance the peace and stability of the Euro­Atlantic area.

13.In parallel, NATO has successfully adapted to enhance its ability to contribute to Euro­Atlantic peace and stability. Internal reform has included a new command structure, including the Combined Joint Task Force (CJTF) concept, the creation of arrangements to permit the rapid deployment of forces for the full range of the Alliance's missions, and the building of the European Security and Defence Identity (ESDI) within the Alliance.

14.The United Nations (UN), the Organisation for Security and Cooperation in Europe (OSCE), the European Union (EU), and the Western European Union (WEU) have made distinctive contributions to Euro­Atlantic security and stability. Mutually reinforcing organisations have become a central feature of the security environment.

15.The United Nations Security Council has the primary responsibility for the maintenance of international peace and security and, as such, plays a crucial role in contributing to security and stability in the Euro­Atlantic area.

16.The OSCE, as a regional arrangement, is the most inclusive security organisation in Europe, which also includes Canada and the United States, and plays an essential role in promoting peace and stability, enhancing cooperative security, and advancing democracy and human rights in Europe. The OSCE is particularly active in the fields of preventive diplomacy, conflict prevention, crisis management, and post­conflict rehabilitation. NATO and the OSCE have developed close practical cooperation, especially with regard to the international effort to bring peace to the former Yugoslavia.

17.The European Union has taken important decisions and given a further impetus to its efforts to strengthen its security and defence dimension. This process will have implications for the entire Alliance, and all European Allies should be involved in it, building on arrangements developed by NATO and the WEU. The development of a common foreign and security policy (CFSP) includes the progressive framing of a common defence policy. Such a policy, as called for in the Amsterdam Treaty, would be compatible with the common security and defence policy established within the framework of the Washington Treaty. Important steps taken in this context include the incorporation of the WEU's Petersberg tasks into the Treaty on European Union and the development of closer institutional relations with the WEU.

18.As stated in the 1994 Summit declaration and reaffirmed in Berlin in 1996, the Alliance fully supports the development of the European Security and Defence Identity within the Alliance by making available its assets and capabilities for WEU­led operations. To this end, the Alliance and the WEU have developed a close relationship and put into place key elements of the ESDI as agreed in Berlin. In order to enhance peace and stability in Europe and more widely, the European Allies are strengthening their capacity for action, including by increasing their military capabilities. The increase of the responsibilities and capacities of the European Allies with respect to security and defence enhances the security environment of the Alliance.

19.The stability, transparency, predictability, lower levels of armaments, and verification which can be provided by arms control and non­proliferation agreements support NATO's political and military efforts to achieve its strategic objectives. The Allies have played a major part in the significant achievements in this field. These include the enhanced stability produced by the CFE Treaty, the deep reductions in nuclear weapons provided for in the START treaties; the signature of the Comprehensive Test Ban Treaty, the indefinite and unconditional extension of the Nuclear

 Non­Proliferation Treaty, the accession to it of Belarus, Kazakhstan, and Ukraine as non­nuclear weapons states, and the entry into force of the Chemical Weapons Convention. The Ottawa Convention to ban anti­personnel landmines and similar agreements make an important contribution to alleviating human suffering. There are welcome prospects for further advances in arms control in conventional weapons and with respect to nuclear, chemical, and biological (NBC) weapons.

Security challenges and risks

20.Notwithstanding positive developments in the strategic environment and the fact that large­scale conventional aggression against the Alliance is highly unlikely, the possibility of such a threat emerging over the longer term exists. The security of the Alliance remains subject to a wide variety of military and non­military risks which are multi­directional and often difficult to predict. These risks include uncertainty and instability in and around the Euro­Atlantic area and the possibility of regional crises at the periphery of the Alliance, which could evolve rapidly. Some countries in and around the Euro­Atlantic area face serious economic, social and political difficulties. Ethnic and religious rivalries, territorial disputes, inadequate or failed efforts at reform, the abuse of human rights, and the dissolution of states can lead to local and even regional instability. The resulting tensions could lead to crises affecting Euro­Atlantic stability, to human suffering, and to armed conflicts. Such conflicts could affect the security of the Alliance by spilling over into neighbouring countries, including NATO countries, or in other ways, and could also affect the security of other states.

21.The existence of powerful nuclear forces outside the Alliance also constitutes a significant factor which the Alliance has to take into account if security and stability in the Euro­Atlantic area are to be maintained.

22.The proliferation of NBC weapons and their means of delivery remains a matter of serious concern. In spite of welcome progress in strengthening international non­proliferation regimes, major challenges with respect to proliferation remain. The Alliance recognises that proliferation can occur despite efforts to prevent it and can pose a direct military threat to the Allies' populations, territory, and forces. Some states, including on NATO's periphery and in other regions, sell or acquire or try to acquire NBC weapons and delivery means. Commodities and technology that could be used to build these weapons of mass destruction and their delivery means are becoming more common, while detection and prevention of illicit trade in these materials and know­how continues to be difficult. Non­state actors have shown the potential to create and use some of these weapons.

23.The global spread of technology that can be of use in the production of weapons may result in the greater availability of sophisticated military capabilities, permitting adversaries to acquire highly capable offensive and defensive air, land, and sea­borne systems, cruise missiles, and other advanced weaponry. In addition, state and non­state adversaries may try to exploit the Alliance's growing reliance on information systems through information operations designed to disrupt such systems. They may attempt to use strategies of this kind to counter NATO's superiority in traditional weaponry.

24.Any armed attack on the territory of the Allies, from whatever direction, would be covered by Articles 5 and 6 of the Washington Treaty. However, Alliance security must also take account of the global context. Alliance security interests can be affected by other risks of a wider nature, including acts of terrorism, sabotage and organised crime, and by the disruption of the flow of vital resources. The uncontrolled movement of large numbers of people, particularly as a consequence of armed conflicts, can also pose problems for security and stability affecting the Alliance. Arrangements exist within the Alliance for consultation among the Allies under Article 4 of the Washington Treaty and, where appropriate, co­ordination of their efforts including their responses to risks of this kind.

Part III ­ The Approach to Security in the 21st Century

25.The Alliance is committed to a broad approach to security, which recognises the importance of political, economic, social and environmental factors in addition to the indispensable defence dimension. This broad approach forms the basis for the Alliance to accomplish its fundamental security tasks effectively, and its increasing effort to develop effective cooperation with other European and Euro­Atlantic organisations as well as the United Nations. Our collective aim is to build a European security architecture in which the Alliance's contribution to the security and stability of the Euro­Atlantic area and the contribution of these other international organisations are complementary and mutually reinforcing, both in deepening relations among Euro­Atlantic countries and in managing crises. NATO remains the essential forum for consultation among the Allies and the forum for agreement on policies bearing on the security and defence commitments of its members under the Washington Treaty.

26.The Alliance seeks to preserve peace and to reinforce Euro­Atlantic security and stability by: the preservation of the transatlantic link; the maintenance of effective military capabilities sufficient for deterrence and defence and to fulfil the full range of its missions; the development of the European Security and Defence Identity within the Alliance; an overall capability to manage crises successfully; its continued openness to new members; and the continued pursuit of partnership, cooperation, and dialogue with other nations as part of its co­operative approach to Euro­Atlantic security, including in the field of arms control and disarmament.

The Transatlantic Link

27.NATO is committed to a strong and dynamic partnership between Europe and North America in support of the values and interests they share. The security of Europe and that of North America are indivisible. Thus the Alliance's commitment to the indispensable transatlantic link and the collective defence of its members is fundamental to its credibility and to the security and stability of the Euro­Atlantic area.

The Maintenance Of Alliance Military Capabilities

28.The maintenance of an adequate military capability and clear preparedness to act collectively in the common defence remain central to the Alliance's security objectives. Such a capability, together with political solidarity, remains at the core of the Alliance's ability to prevent any attempt at coercion or intimidation, and to guarantee that military aggression directed against the Alliance can never be perceived as an option with any prospect of success.

29.Military capabilities effective under the full range of foreseeable circumstances are also the basis of the Alliance's ability to contribute to conflict prevention and crisis management through non­Article 5 crisis response operations. These missions can be highly demanding and can place a premium on the same political and military qualities, such as cohesion, multinational training, and extensive prior planning, that would be essential in an Article 5 situation. Accordingly, while they may pose special requirements, they will be handled through a common set of Alliance structures and procedures.

The European Security And Defence Identity

30.The Alliance, which is the foundation of the collective defence of its members and through which common security objectives will be pursued wherever possible, remains committed to a balanced and dynamic transatlantic partnership. The European Allies have taken decisions to enable them to assume greater responsibilities in the security and defence field in order to enhance the peace and stability of the Euro­Atlantic area and thus the security of all Allies. On the basis of decisions taken by the Alliance, in Berlin in 1996 and subsequently, the European Security and Defence Identity will continue to be developed within NATO. This process will require close cooperation between NATO, the WEU and, if and when appropriate, the European Union. It will enable all European Allies to make a more coherent and effective contribution to the missions and activities of the Alliance as an expression of our shared responsibilities; it will reinforce the transatlantic partnership; and it will assist the European Allies to act by themselves as required through the readiness of the Alliance, on a case­by­case basis and by consensus, to make its assets and capabilities available for operations in which the Alliance is not engaged militarily under the political control and strategic direction either of the WEU or as otherwise agreed, taking into account the full participation of all European Allies if they were so to choose.

Conflict Prevention And Crisis Management

31.In pursuit of its policy of preserving peace, preventing war, and enhancing security and stability and as set out in the fundamental security tasks, NATO will seek, in cooperation with other organisations, to prevent conflict, or, should a crisis arise, to contribute to its effective management, consistent with international law, including through the possibility of conducting non­Article 5 crisis response operations. The Alliance's preparedness to carry out such operations supports the broader objective of reinforcing and extending stability and often involves the participation of NATO's Partners. NATO recalls its offer, made in Brussels in 1994, to support on a case­by­case basis in accordance with its own procedures, peacekeeping and other operations under the authority of the UN Security Council or the responsibility of the OSCE, including by making available Alliance resources and expertise. In this context NATO recalls its subsequent decisions with respect to crisis response operations in the Balkans. Taking into account the necessity for Alliance solidarity and cohesion, participation in any such operation or mission will remain subject to decisions of member states in accordance with national constitutions.

32.NATO will make full use of partnership, cooperation and dialogue and its links to other organisations to contribute to preventing crises and, should they arise, defusing them at an early stage. A coherent approach to crisis management, as in any use of force by the Alliance, will require the Alliance's political authorities to choose and co­ordinate appropriate responses from a range of both political and military measures and to exercise close political control at all stages.

Partnership, Cooperation, And Dialogue

33.Through its active pursuit of partnership, cooperation, and dialogue, the Alliance is a positive force in promoting security and stability throughout the Euro­Atlantic area. Through outreach and openness, the Alliance seeks to preserve peace, support and promote democracy, contribute to prosperity and progress, and foster genuine partnership with and among all democratic Euro­Atlantic countries. This aims at enhancing the security of all, excludes nobody, and helps to overcome divisions and disagreements that could lead to instability and conflict.

34.The Euro­Atlantic Partnership Council (EAPC) will remain the overarching framework for all aspects of NATO's cooperation with its Partners. It offers an expanded political dimension for both consultation and cooperation. EAPC consultations build increased transparency and confidence among its members on security issues, contribute to conflict prevention and crisis management, and develop practical cooperation activities, including in civil emergency planning, and scientific and environmental affairs.

35.The Partnership for Peace is the principal mechanism for forging practical security links between the Alliance and its Partners and for enhancing interoperability between Partners and NATO. Through detailed programmes that reflect individual Partners' capacities and interests, Allies and Partners work towards transparency in national defence planning and budgeting; democratic control of defence forces; preparedness for civil disasters and other emergencies; and the development of the ability to work together, including in NATO­led PfP operations. The Alliance is committed to increasing the role the Partners play in PfP decision­making and planning, and making PfP more operational. NATO has undertaken to consult with any active participant in the Partnership if that Partner perceives a direct threat to its territorial integrity, political independence, or security.

36.Russia plays a unique role in Euro­Atlantic security. Within the framework of the NATO­Russia Founding Act on Mutual Relations, Cooperation and Security, NATO and Russia have committed themselves to developing their relations on the basis of common interest, reciprocity and transparency to achieve a lasting and inclusive peace in the Euro­Atlantic area based on the principles of democracy and co­operative security. NATO and Russia have agreed to give concrete substance to their shared commitment to build a stable, peaceful and undivided Europe. A strong, stable and enduring partnership between NATO and Russia is essential to achieve lasting stability in the Euro­Atlantic area.

37.Ukraine occupies a special place in the Euro­Atlantic security environment and is an important and valuable partner in promoting stability and common democratic values. NATO is committed to further strengthening its distinctive partnership with Ukraine on the basis of the NATO­Ukraine Charter, including political consultations on issues of common concern and a broad range of practical cooperation activities. The Alliance continues to support Ukrainian sovereignty and independence, territorial integrity, democratic development, economic prosperity and its status as a non­nuclear weapons state as key factors of stability and security in central and eastern Europe and in Europe as a whole.

38.The Mediterranean is an area of special interest to the Alliance. Security in Europe is closely linked to security and stability in the Mediterranean. NATO's Mediterranean Dialogue process is an integral part of NATO's co­operative approach to security. It provides a framework for confidence building, promotes transparency and cooperation in the region, and reinforces and is reinforced by other international efforts. The Alliance is committed to developing progressively the political, civil, and military aspects of the Dialogue with the aim of achieving closer cooperation with, and more active involvement by, countries that are partners in this Dialogue.

Enlargement

39.The Alliance remains open to new members under Article 10 of the Washington Treaty. It expects to extend further invitations in coming years to nations willing and able to assume the responsibilities and obligations of membership, and as NATO determines that the inclusion of

these nations would serve the overall political and strategic interests of the Alliance, strengthen its effectiveness and cohesion, and enhance overall European security and stability. To this end, NATO has established a programme of activities to assist aspiring countries in their preparations for possible future membership in the context of its wider relationship with them. No European democratic country whose admission would fulfil the objectives of the Treaty will be excluded from consideration.

Arms Control, Disarmament, And Non­Proliferation

40.The Alliance's policy of support for arms control, disarmament, and non­proliferation will continue to play a major role in the achievement of the Alliance's security objectives. The Allies seek to enhance security and stability at the lowest possible level of forces consistent with the Alliance's ability to provide for collective defence and to fulfil the full range of its missions. The Alliance will continue to ensure that ­ as an important part of its broad approach to security ­ defence and arms control, disarmament, and non­proliferation objectives remain in harmony. The Alliance will continue to actively contribute to the development of arms control, disarmament, and non­proliferation agreements as well as to confidence and security building measures. The Allies take seriously their distinctive role in promoting a broader, more comprehensive and more verifiable international arms control and disarmament process. The Alliance will enhance its political efforts to reduce dangers arising from the proliferation of weapons of mass destruction and their means of delivery. The principal non­proliferation goal of the Alliance and its members is to prevent proliferation from occurring or, should it occur, to reverse it through diplomatic means. The Alliance attaches great importance to the continuing validity and the full implementation by all parties of the CFE Treaty as an essential element in ensuring the stability of the Euro­Atlantic area.

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Prepared 21 May 1999