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The 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
- At their Summit meeting in Washington in April 1999, NATO Heads
of State and Government approved the Alliance's new Strategic
Concept.
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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 East-West confrontation to a peaceful end. The
dramatic changes in the Euro-Atlantic 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.
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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 Euro-Atlantic 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 Euro-Atlantic 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 Euro-Atlantic peace and stability, including oppression, ethnic
conflict, economic distress, the collapse of political order,
and the proliferation of weapons of mass destruction.
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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.
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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
- 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
Euro-Atlantic area. The Alliance therefore not only ensures the
defence of its members but contributes to peace and stability
in this region.
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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.
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The fundamental guiding principle by which the
Alliance works is that of common commitment and mutual co-operation
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.
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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 Euro-Atlantic 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.
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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
Euro-Atlantic 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.
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Consultation:
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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 co-ordination of their
efforts in fields of common concern.
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Deterrence and Defence:
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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.
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And in order to enhance the security and stability
of the Euro-Atlantic area:
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Crisis Management:
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To stand ready, case-by-case 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.
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Partnership:
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To promote wide-ranging partnership, cooperation,
and dialogue with other countries in the Euro-Atlantic area,
with the aim of increasing transparency, mutual confidence
and the capacity for joint action with the Alliance.
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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
- 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 Euro-Atlantic 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 Euro-Atlantic area.
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In parallel, NATO has successfully adapted to
enhance its ability to contribute to Euro-Atlantic 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.
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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 Euro-Atlantic security and stability. Mutually
reinforcing organisations have become a central feature of the
security environment.
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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 Euro-Atlantic area.
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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 post-conflict rehabilitation. NATO and
the OSCE have developed close practical cooperation, especially
with regard to the international effort to bring peace to the
former Yugoslavia.
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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.
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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 WEU-led 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.
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The stability, transparency, predictability, lower
levels of armaments, and verification which can be provided by
arms control and non-proliferation 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 Non-Proliferation Treaty, the accession to it of Belarus,
Kazakhstan, and Ukraine as non-nuclear weapons states, and the
entry into force of the Chemical Weapons Convention. The Ottawa
Convention to ban anti-personnel 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
- Notwithstanding positive developments in the strategic environment
and the fact that large-scale 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 non-military
risks which are multi-directional and often difficult to predict.
These risks include uncertainty and instability in and around
the Euro-Atlantic area and the possibility of regional crises
at the periphery of the Alliance, which could evolve rapidly.
Some countries in and around the Euro-Atlantic 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 Euro-Atlantic 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.
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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 Euro-Atlantic
area are to be maintained.
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The proliferation of NBC weapons and their means
of delivery remains a matter of serious concern. In spite of welcome
progress in strengthening international non-proliferation 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 know-how continues to
be difficult. Non-state actors have shown the potential to create
and use some of these weapons.
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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
sea-borne systems, cruise missiles, and other advanced weaponry.
In addition, state and non-state 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.
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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, co-ordination of their efforts including their
responses to risks of this kind.
Part III - The Approach to Security in the 21st Century
- 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
Euro-Atlantic 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 Euro-Atlantic area and the contribution of these other
international organisations are complementary and mutually reinforcing,
both in deepening relations among Euro-Atlantic 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.
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The Alliance seeks to preserve peace and to reinforce
Euro-Atlantic 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 co-operative approach to Euro-Atlantic
security, including in the field of arms control and disarmament.
The Transatlantic Link
- 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 Euro-Atlantic area.
The Maintenance Of Alliance Military Capabilities
- 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.
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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 non-Article 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
- 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 Euro-Atlantic 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 case-by-case 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
- 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 non-Article 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 case-by-case 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.
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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 co-ordinate appropriate responses
from a range of both political and military measures and to exercise
close political control at all stages.
Partnership, Cooperation, And Dialogue
- Through its active pursuit of partnership, cooperation, and
dialogue, the Alliance is a positive force in promoting security
and stability throughout the Euro-Atlantic 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 Euro-Atlantic
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.
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The Euro-Atlantic 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.
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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 NATO-led PfP operations. The Alliance is
committed to increasing the role the Partners play in PfP decision-making
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.
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Russia plays a unique role in Euro-Atlantic security.
Within the framework of the NATO-Russia 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 Euro-Atlantic area based on the principles
of democracy and co-operative 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 Euro-Atlantic area.
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Ukraine occupies a special place in the Euro-Atlantic
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 NATO-Ukraine 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 non-nuclear weapons state as key factors of stability and security
in central and eastern Europe and in Europe as a whole.
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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 co-operative 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
- 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 Non-Proliferation
- The Alliance's policy of support for arms control, disarmament,
and non-proliferation 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 non-proliferation objectives remain in harmony.
The Alliance will continue to actively contribute to the development
of arms control, disarmament, and non-proliferation 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
non-proliferation 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 Euro-Atlantic area.
Part IV - Guidelines for the Alliance's Forces
Principles Of Alliance Strategy
- The Alliance will maintain the necessary military capabilities
to accomplish the full range of NATO's missions. The principles
of Allied solidarity and strategic unity remain paramount for
all Alliance missions. Alliance forces must safeguard NATO's military
effectiveness and freedom of action. The security of all Allies
is indivisible: an attack on one is an attack on all. With respect
to collective defence under Article 5 of the Washington Treaty,
the combined military forces of the Alliance must be capable of
deterring any potential aggression against it, of stopping an
aggressor's advance as far forward as possible should an attack
nevertheless occur, and of ensuring the political independence
and territorial integrity of its member states. They must also
be prepared to contribute to conflict prevention and to conduct
non-Article 5 crisis response operations. The Alliance's forces
have essential roles in fostering cooperation and understanding
with NATO's Partners and other states, particularly in helping
Partners to prepare for potential participation in NATO-led PfP
operations. Thus they contribute to the preservation of peace,
to the safeguarding of common security interests of Alliance members,
and to the maintenance of the security and stability of the Euro-Atlantic
area. By deterring the use of NBC weapons, they contribute to
Alliance efforts aimed at preventing the proliferation of these
weapons and their delivery means.
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The achievement of the Alliance's aims depends
critically on the equitable sharing of the roles, risks and responsibilities,
as well as the benefits, of common defence. The presence of United
States conventional and nuclear forces in Europe remains vital
to the security of Europe, which is inseparably linked to that
of North America. The North American Allies contribute to the
Alliance through military forces available for Alliance missions,
through their broader contribution to international peace and
security, and through the provision of unique training facilities
on the North American continent. The European Allies also make
wide-ranging and substantial contributions. As the process of
developing the ESDI within the Alliance progresses, the European
Allies will further enhance their contribution to the common defence
and to international peace and stability including through multinational
formations.
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The principle of collective effort in Alliance
defence is embodied in practical arrangements that enable the
Allies to enjoy the crucial political, military and resource advantages
of collective defence, and prevent the renationalisation of defence
policies, without depriving the Allies of their sovereignty. These
arrangements also enable NATO's forces to carry out non-Article
5 crisis response operations and constitute a prerequisite for
a coherent Alliance response to all possible contingencies. They
are based on procedures for consultation, an integrated military
structure, and on co-operation agreements. Key features include
collective force planning; common funding; common operational
planning; multinational formations, headquarters and command arrangements;
an integrated air defence system; a balance of roles and responsibilities
among the Allies; the stationing and deployment of forces outside
home territory when required; arrangements, including planning,
for crisis management and reinforcement; common standards and
procedures for equipment, training and logistics; joint and combined
doctrines and exercises when appropriate; and infrastructure,
armaments and logistics cooperation. The inclusion of NATO's Partners
in such arrangements or the development of similar arrangements
for them, in appropriate areas, is also instrumental in enhancing
cooperation and common efforts in Euro-Atlantic security matters.
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Multinational funding, including through the Military
Budget and the NATO Security Investment Programme, will continue
to play an important role in acquiring and maintaining necessary
assets and capabilities. The management of resources should be
guided by the military requirements of the Alliance as they evolve.
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The Alliance supports the further development
of the ESDI within the Alliance, including by being prepared to
make available assets and capabilities for operations under the
political control and strategic direction either of the WEU or
as otherwise agreed.
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To protect peace and to prevent war or any kind
of coercion, the Alliance will maintain for the foreseeable future
an appropriate mix of nuclear and conventional forces based in
Europe and kept up to date where necessary, although at a minimum
sufficient level. Taking into account the diversity of risks with
which the Alliance could be faced, it must maintain the forces
necessary to ensure credible deterrence and to provide a wide
range of conventional response options. But the Alliance's conventional
forces alone cannot ensure credible deterrence. Nuclear weapons
make a unique contribution in rendering the risks of aggression
against the Alliance incalculable and unacceptable. Thus, they
remain essential to preserve peace.
The Alliance's Force Posture
The Missions of Alliance Military Forces
- The primary role of Alliance military forces is to protect peace
and to guarantee the territorial integrity, political independence
and security of member states. The Alliance's forces must therefore
be able to deter and defend effectively, to maintain or restore
the territorial integrity of Allied nations and - in case of conflict
- to terminate war rapidly by making an aggressor reconsider his
decision, cease his attack and withdraw. NATO forces must maintain
the ability to provide for collective defence while conducting
effective non-Article 5 crisis response operations.
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The maintenance of the security and stability
of the Euro-Atlantic area is of key importance. An important aim
of the Alliance and its forces is to keep risks at a distance
by dealing with potential crises at an early stage. In the event
of crises which jeopardise Euro-Atlantic stability and could affect
the security of Alliance members, the Alliance's military forces
may be called upon to conduct crisis response operations. They
may also be called upon to contribute to the preservation of international
peace and security by conducting operations in support of other
international organisations, complementing and reinforcing political
actions within a broad approach to security.
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In contributing to the management of crises through
military operations, the Alliance's forces will have to deal with
a complex and diverse range of actors, risks, situations and demands,
including humanitarian emergencies. Some non-Article 5 crisis
response operations may be as demanding as some collective defence
missions. Well-trained and well-equipped forces at adequate levels
of readiness and in sufficient strength to meet the full range
of contingencies as well as the appropriate support structures,
planning tools and command and control capabilities are essential
in providing efficient military contributions. The Alliance should
also be prepared to support, on the basis of separable but not
separate capabilities, operations under the political control
and strategic direction either of the WEU or as otherwise agreed.
The potential participation of Partners and other non-NATO nations
in NATO-led operations as well as possible operations with Russia
would be further valuable elements of NATO's contribution to managing
crises that affect Euro-Atlantic security.
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Alliance military forces also contribute to promoting
stability throughout the Euro-Atlantic area by their participation
in military-to-military contacts and in other cooperation activities
and exercises under the Partnership for Peace as well as those
organised to deepen NATO's relationships with Russia, Ukraine
and the Mediterranean Dialogue countries. They contribute to stability
and understanding by participating in confidence-building activities,
including those which enhance transparency and improve communication;
as well as in verification of arms control agreements and in humanitarian
de-mining. Key areas of consultation and cooperation could include
inter alia: training and exercises, interoperability, civil-military
relations, concept and doctrine development, defence planning,
crisis management, proliferation issues, armaments cooperation
as well as participation in operational planning and operations.
Guidelines for the Alliance's Force Posture
- To implement the Alliance's fundamental security tasks and the
principles of its strategy, the forces of the Alliance must continue
to be adapted to meet the requirements of the full range of Alliance
missions effectively and to respond to future challenges. The
posture of Allies' forces, building on the strengths of different
national defence structures, will conform to the guidelines developed
in the following paragraphs.
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The size, readiness, availability and deployment
of the Alliance's military forces will reflect its commitment
to collective defence and to conduct crisis response operations,
sometimes at short notice, distant from their home stations, including
beyond the Allies' territory. The characteristics of the Alliance's
forces will also reflect the provisions of relevant arms control
agreements. Alliance forces must be adequate in strength and capabilities
to deter and counter aggression against any Ally. They must be
interoperable and have appropriate doctrines and technologies.
They must be held at the required readiness and deployability,
and be capable of military success in a wide range of complex
joint and combined operations, which may also include Partners
and other non-NATO nations.
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This means in particular:
- that the overall size of the Allies' forces will be kept
at the lowest levels consistent with the requirements of collective
defence and other Alliance missions; they will be held at
appropriate and graduated readiness;
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that the peacetime geographical distribution
of forces will ensure a sufficient military presence throughout
the territory of the Alliance, including the stationing and
deployment of forces outside home territory and waters and
forward deployment of forces when and where necessary. Regional
and, in particular, geostrategic considerations within the
Alliance will have to be taken into account, as instabilities
on NATO's periphery could lead to crises or conflicts requiring
an Alliance military response, potentially with short warning
times;
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that NATO's command structure will be able
to undertake command and control of the full range of the
Alliance's military missions including through the use of
deployable combined and joint HQs, in particular CJTF headquarters,
to command and control multinational and multiservice forces.
It will also be able to support operations under the political
control and strategic direction either of the WEU or as otherwise
agreed, thereby contributing to the development of the ESDI
within the Alliance, and to conduct NATO-led non-Article 5
crisis response operations in which Partners and other countries
may participate;
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that overall, the Alliance will, in both the
near and long term and for the full range of its missions,
require essential operational capabilities such as an effective
engagement capability; deployability and mobility; survivability
of forces and infrastructure; and sustainability, incorporating
logistics and force rotation. To develop these capabilities
to their full potential for multinational operations, interoperability,
including human factors, the use of appropriate advanced technology,
the maintenance of information superiority in military operations,
and highly qualified personnel with a broad spectrum of skills
will be important. Sufficient capabilities in the areas of
command, control and communications as well as intelligence
and surveillance will serve as necessary force multipliers;
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that at any time a limited but militarily
significant proportion of ground, air and sea forces will
be able to react as rapidly as necessary to a wide range of
eventualities, including a short-notice attack on any Ally.
Greater numbers of force elements will be available at appropriate
levels of readiness to sustain prolonged operations, whether
within or beyond Alliance territory, including through rotation
of deployed forces. Taken together, these forces must also
be of sufficient quality, quantity and readiness to contribute
to deterrence and to defend against limited attacks on the
Alliance;
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that the Alliance must be able to build up
larger forces, both in response to any fundamental changes
in the security environment and for limited requirements,
by reinforcement, by mobilising reserves, or by reconstituting
forces when necessary. This ability must be in proportion
to potential threats to Alliance security, including potential
long-term developments. It must take into account the possibility
of substantial improvements in the readiness and capabilities
of military forces on the periphery of the Alliance. Capabilities
for timely reinforcement and resupply both within and from
Europe and North America will remain of critical importance,
with a resulting need for a high degree of deployability,
mobility and flexibility;
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that appropriate force structures and procedures,
including those that would provide an ability to build up,
deploy and draw down forces quickly and selectively, are necessary
to permit measured, flexible and timely responses in order
to reduce and defuse tensions. These arrangements must be
exercised regularly in peacetime;
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that the Alliance's defence posture must have
the capability to address appropriately and effectively the
risks associated with the proliferation of NBC weapons and
their means of delivery, which also pose a potential threat
to the Allies' populations, territory, and forces. A balanced
mix of forces, response capabilities and strengthened defences
is needed;
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that the Alliance's forces and infrastructure
must be protected against terrorist attacks.
Characteristics of Conventional Forces
- It is essential that the Allies' military forces have a credible
ability to fulfil the full range of Alliance missions. This requirement
has implications for force structures, force and equipment levels;
readiness, availability, and sustainability; training and exercises;
deployment and employment options; and force build-up and mobilisation
capabilities. The aim should be to achieve an optimum balance
between high readiness forces capable of beginning rapidly, and
immediately as necessary, collective defence or non-Article 5
crisis response operations; forces at different levels of lower
readiness to provide the bulk of those required for collective
defence, for rotation of forces to sustain crisis response operations,
or for further reinforcement of a particular region; and a longer-term
build-up and augmentation capability for the worst case -- but
very remote -- scenario of large scale operations for collective
defence. A substantial proportion of Alliance forces will be capable
of performing more than one of these roles.
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Alliance forces will be structured to reflect
the multinational and joint nature of Alliance missions. Essential
tasks will include controlling, protecting, and defending territory;
ensuring the unimpeded use of sea, air, and land lines of communication;
sea control and protecting the deployment of the Alliance's sea-based
deterrent; conducting independent and combined air operations;
ensuring a secure air environment and effective extended air defence;
surveillance, intelligence, reconnaissance and electronic warfare;
strategic lift; and providing effective and flexible command and
control facilities, including deployable combined and joint headquarters.
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The Alliance's defence posture against the risks
and potential threats of the proliferation of NBC weapons and
their means of delivery must continue to be improved, including
through work on missile defences. As NATO forces may be called
upon to operate beyond NATO's borders, capabilities for dealing
with proliferation risks must be flexible, mobile, rapidly deployable
and sustainable. Doctrines, planning, and training and exercise
policies must also prepare the Alliance to deter and defend against
the use of NBC weapons. The aim in doing so will be to further
reduce operational vulnerabilities of NATO military forces while
maintaining their flexibility and effectiveness despite the presence,
threat or use of NBC weapons.
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Alliance strategy does not include a chemical
or biological warfare capability. The Allies support universal
adherence to the relevant disarmament regimes. But, even if further
progress with respect to banning chemical and biological weapons
can be achieved, defensive precautions will remain essential.
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Given reduced overall force levels and constrained
resources, the ability to work closely together will remain vital
for achieving the Alliance's missions. The Alliance's collective
defence arrangements in which, for those concerned, the integrated
military structure plays the key role, are essential in this regard.
The various strands of NATO's defence planning need to be effectively
coordinated at all levels in order to ensure the preparedness
of the forces and supporting structures to carry out the full
spectrum of their roles. Exchanges of information among the Allies
about their force plans contribute to securing the availability
of the capabilities needed for the execution of these roles. Consultations
in case of important changes in national defence plans also remain
of key importance. Cooperation in the development of new operational
concepts will be essential for responding to evolving security
challenges. The detailed practical arrangements that have been
developed as part of the ESDI within the Alliance contribute to
close allied co-operation without unnecessary duplication of assets
and capabilities.
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To be able to respond flexibly to possible contingencies
and to permit the effective conduct of Alliance missions, the
Alliance requires sufficient logistics capabilities, including
transport capacities, medical support and stocks to deploy and
sustain all types of forces effectively. Standardisation will
foster cooperation and cost-effectiveness in providing logistic
support to allied forces. Mounting and sustaining operations outside
the Allies' territory, where there may be little or no host-nation
support, will pose special logistical challenges. The ability
to build-up larger, adequately equipped and trained forces, in
a timely manner and to a level able to fulfil the full range of
Alliance missions, will also make an essential contribution to
crisis management and defence. This will include the ability to
reinforce any area at risk and to establish a multinational presence
when and where this is needed. Forces of various kinds and at
various levels of readiness will be capable of flexible employment
in both intra-European and transatlantic reinforcement. This will
require control of lines of communication, and appropriate support
and exercise arrangements.
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The interaction between Alliance forces and the
civil environment (both governmental and non-governmental) in
which they operate is crucial to the success of operations. Civil-military
cooperation is interdependent: military means are increasingly
requested to assist civil authorities; at the same time civil
support to military operations is important for logistics, communications,
medical support, and public affairs. Cooperation between the Alliance's
military and civil bodies will accordingly remain essential.
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The Alliance's ability to accomplish the full
range of its missions will rely increasingly on multinational
forces, complementing national commitments to NATO for the Allies
concerned. Such forces, which are applicable to the full range
of Alliance missions, demonstrate the Alliance's resolve to maintain
a credible collective defence; enhance Alliance cohesion; and
reinforce the transatlantic partnership and strengthen the ESDI
within the Alliance. Multinational forces, particularly those
capable of deploying rapidly for collective defence or for non-Article
5 crisis response operations, reinforce solidarity. They can also
provide a way of deploying more capable formations than might
be available purely nationally, thus helping to make more efficient
use of scarce defence resources. This may include a highly integrated,
multinational approach to specific tasks and functions, an approach
which underlies the implementation of the CJTF concept. For peace
support operations, effective multinational formations and other
arrangements involving Partners will be valuable. In order to
exploit fully the potential offered by multinational formations,
improving interoperability, inter alia through sufficient training
and exercises, is of the highest importance.
Characteristics of Nuclear Forces
- The fundamental purpose of the nuclear forces of the Allies
is political: to preserve peace and prevent coercion and any kind
of war. They will continue to fulfil an essential role by ensuring
uncertainty in the mind of any aggressor about the nature of the
Allies' response to military aggression. They demonstrate that
aggression of any kind is not a rational option. The supreme guarantee
of the security of the Allies is provided by the strategic nuclear
forces of the Alliance, particularly those of the United States;
the independent nuclear forces of the United Kingdom and France,
which have a deterrent role of their own, contribute to the overall
deterrence and security of the Allies.
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A credible Alliance nuclear posture and the demonstration
of Alliance solidarity and common commitment to war prevention
continue to require widespread participation by European Allies
involved in collective defence planning in nuclear roles, in peacetime
basing of nuclear forces on their territory and in command, control
and consultation arrangements. Nuclear forces based in Europe
and committed to NATO provide an essential political and military
link between the European and the North American members of the
Alliance. The Alliance will therefore maintain adequate nuclear
forces in Europe. These forces need to have the necessary characteristics
and appropriate flexibility and survivability, to be perceived
as a credible and effective element of the Allies' strategy in
preventing war. They will be maintained at the minimum level sufficient
to preserve peace and stability.
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The Allies concerned consider that, with the radical
changes in the security situation, including reduced conventional
force levels in Europe and increased reaction times, NATO's ability
to defuse a crisis through diplomatic and other means or, should
it be necessary, to mount a successful conventional defence has
significantly improved. The circumstances in which any use of
nuclear weapons might have to be contemplated by them are therefore
extremely remote. Since 1991, therefore, the Allies have taken
a series of steps which reflect the post-Cold War security environment.
These include a dramatic reduction of the types and numbers of
NATO's sub-strategic forces including the elimination of all nuclear
artillery and ground-launched short-range nuclear missiles; a
significant relaxation of the readiness criteria for nuclear-roled
forces; and the termination of standing peacetime nuclear contingency
plans. NATO's nuclear forces no longer target any country. Nonetheless,
NATO will maintain, at the minimum level consistent with the prevailing
security environment, adequate sub-strategic forces based in Europe
which will provide an essential link with strategic nuclear forces,
reinforcing the transatlantic link. These will consist of dual
capable aircraft and a small number of United Kingdom Trident
warheads. Sub-strategic nuclear weapons will, however, not be
deployed in normal circumstances on surface vessels and attack
submarines.
Part V - Conclusion
- As the North Atlantic Alliance enters its sixth decade, it must
be ready to meet the challenges and opportunities of a new century.
The Strategic Concept reaffirms the enduring purpose of the Alliance
and sets out its fundamental security tasks. It enables a transformed
NATO to contribute to the evolving security environment, supporting
security and stability with the strength of its shared commitment
to democracy and the peaceful resolution of disputes. The Strategic
Concept will govern the Alliance's security and defence policy,
its operational concepts, its conventional and nuclear force posture
and its collective defence arrangements, and will be kept under
review in the light of the evolving security environment. In an
uncertain world the need for effective defence remains, but in
reaffirming this commitment the Alliance will also continue making
full use of every opportunity to help build an undivided continent
by promoting and fostering the vision of a Europe whole and free.
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