Nonproliferation

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 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.

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 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.

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 Euro-Atlantic 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 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.

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 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.

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 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.

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 co-ordination 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 Euro-Atlantic area:

- Crisis Management: 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.

- Partnership: 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.

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
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.

13. 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.

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 Euro-Atlantic 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 Euro-Atlantic 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 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.

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
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.

19. 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

20. 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.

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 Euro-Atlantic 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 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.

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 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.

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, co-ordination 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
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.

26. 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

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 Euro-Atlantic
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 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

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 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

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 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.

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 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

33. 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.

34. 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.

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 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.

36. 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.

37. 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.

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 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

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 NON-PROLIFERATION

40. 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

41. 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.

42. 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.

43. 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.

44. 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.

45. 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.

46. 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

47. 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.

48. 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.

49. 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.

50. 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

51. 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.

52. 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.

53. This means in particular:

a. 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;

b. 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;

c. 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;

d. 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;

e. 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;

f. 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;

g. 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;

h. 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;

i. that the Alliance's forces and infrastructure must be protected against terrorist
attacks.

Characteristics of Conventional Forces

54. 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.

55. 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.

56. 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.

57. 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.

58. 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.

59. 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.

60. 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.

61. 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

62. 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.

63. 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.

64. 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

65. 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.