NATOs generalsekretærs årsrapport 2013

The Secretary General’s
Annual Report 2013
NATO's Parlamentariske Forsamling 2013-14
NPA Alm.del Bilag 4
Offentligt
2
I
n an unpredictable world, NATO remains an
essential source of stability. Against the background
of an economic crisis, the new Strategic Concept
that we adopted at our 2010 Lisbon Summit has
guided the continuous adaptation of the Alliance to meet
the demands of a fast-moving security environment. While
NATO is now more effective and efficient than at any time
in its history, we will need to maintain the momentum of
transformation at our next Summit in Wales in September.
Throughout 2013, NATO continued to protect our common
values and our shared security. The men and women of our
armed forces showed constant courage, determination and
professionalism in a wide range of deployments on land,
in the air, and at sea. This Annual Report is, above all, a
testimony to their service and sacrifice.
In Afghanistan, we reached an important milestone
in mid-2013, when Afghan forces assumed lead
responsibility for security across the country. Having
reached their full strength of 352,000 soldiers and police,
their growing capability allowed ISAF to shift from a
combat to a support role and prepare to complete its
mission at the end of 2014, as agreed at the Lisbon
summit. We also saw significant progress in Kosovo,
where NATO is providing vital support to the European
Union-brokered agreement on the normalisation of
relations between Belgrade and Priština.
To continue fulfilling our core tasks effectively, we
agreed at Lisbon to strengthen our defences against
21st century challenges. And at our Chicago Summit
in 2012, we adopted the Smart Defence mindset,
through which Allies work together to acquire
capabilities more efficiently than they could on their
own. We have been working together in 29 different
capability areas, ranging from precision-guided
munitions to maritime patrol aircraft, and two projects
have already been completed. We also continued to
develop our own missile defence system, and enhance
our ability to defend against cyber attacks.
In 2013, we worked with our global network of partners
to bring security where it is needed, and trained with
them to make sure that we maintain the ability to operate
together. We also made steady progress in improving the
way we work and the way we manage our resources,
by reforming the NATO Command Structure, NATO’s
Agencies, and our Headquarters in Brussels. These
reforms will provide our taxpayers with greater security
and better value for money.
Building on the strong foundation that we have laid, the
Wales Summit will deliver an Alliance that is ready, robust
and rebalanced.
The Summit will take place as we prepare to complete
our combat mission in Afghanistan, and plan the launch
of a new, non-combat mission to train, advise and assist
the Afghan security forces after 2014. In Afghanistan and
our other operations, we have learnt many lessons that
we need to apply to shape “Future NATO”.
First, capabilities. We must invest in the capabilities
we need to deal with the risks and challenges that
we face, from terrorism, piracy and instability in our
neighbourhood, to missile and cyber attacks. I expect
European Allies to play their full part in developing critical
capabilities, such as joint intelligence, surveillance and
reconnaissance, heavy transport and missile defence.
As our economies start to recover, we need to show the
political will to keep defence in Europe strong. This will
also keep NATO strong.
Second, connectivity. ISAF brought together over one
quarter of the world’s nations: 28 NATO Allies and
22 partners in the largest coalition in recent history.
Beyond 2014, our forces must stay connected, as Allies
and with partners, so that we stand ready to operate
together when called upon. At the Wales Summit,
we should commit to a broad programme of realistic
exercises, demanding training and comprehensive
education as part of our Connected Forces Initiative.
Foreword
Future NATO:
towards the 2014 Summit
3
Finally, cooperative security. This is one of the pillars of
our Strategic Concept and a vital element of “Future
NATO”. At a time of global risks and threats, NATO
must continue to look outwards. We must deepen and
widen our unique network of political and operational
partnerships with over 40 countries and organisations
on five continents. One area of cooperative security that
offers significant potential benefits for Allies and partners
is defence capacity building. We have unique expertise,
acquired over years of active engagement, on security
sector reform, building defence institutions, developing
armed forces, disarmament and reintegration, which can
add value to broader international efforts. In 2013, we
responded positively to the request by the Libyan Prime
Minister for advice on the development of his country’s
security sector. I believe that similar support from NATO
could help others too, and enable us to project stability
and help prevent conflict.
As we prepare for the Wales Summit, we draw strength
and inspiration from the values that unite North America
and Europe in a unique bond. The transatlantic
relationship remains the bedrock of our security and
our way of life, and 2014 will bring that relationship
new vigour and new vitality. A Transatlantic Trade and
Investment Partnership can give a real boost to the
economic link between the United States and the
European Union, while the NATO Summit will reaffirm
the essential security link between our two continents
and our determination to share the responsibilities and
rewards of security.
As this Annual Report shows, over the past four years
we have laid a firm foundation for the future. We set out a
clear vision in our Strategic Concept, and we are turning
it into reality. Our forces are more capable and connected
than ever before. We have a record of achievement in
challenging operations and world-wide partnerships.
And we are continuing to adapt to make NATO more
agile and more efficient. Our Wales Summit will build on
this foundation to shape “Future NATO”.
						■
Anders Fogh Rasmussen
NATO Secretary General
4
Active engagement
Building security through operations
C
rises and conflicts beyond NATO’s borders
can pose a direct threat to the security
of Alliance territory and populations. With
NATO’s Strategic Concept adopted at
the Lisbon Summit in 2010, Allies agreed to engage,
where possible and when necessary, to prevent crises,
manage crises, stabilise post-conflict situations and
support reconstruction.
In 2013, NATO was actively engaged through operations
to enhance security and stability in the Euro-Atlantic
area and beyond. NATO-led missions and operations
have involved contributions from all 28 NATO member
countries and over 20 partners. From training security
forces in Afghanistan, to monitoring shipping in the
Mediterranean and countering piracy off the Horn of
Africa to providing airlift in support of the African Union,
ensuring stability in Kosovo, and providing Patriot missiles
in support of Turkey, NATO forces were engaged over
three continents.
Afghanistan
NATO and its partners in the International Security
Assistance Force (ISAF) continue their commitment to
Afghanistan, pursuing the same fundamental objective
that has always underpinned the mission: to ensure
that the country never again becomes a safe haven for
international terrorists.
2013 was a year of progress and evolution for
Afghanistan. At NATO’s Lisbon Summit in 2010,
leaders of the countries contributing to ISAF, together
with the President of Afghanistan, launched the
process of transition, whereby Afghanistan would
steadily take lead responsibility for its own security.
They agreed on a clear timetable for handover
of security responsibility from ISAF to the Afghan
National Security Forces (ANSF) by the end of
2014. Each year since then, the ANSF, which has
grown to 352,000 soldiers and police, has taken on
more responsibility. And each year, ISAF’s role has
correspondingly shifted from provision of security to
support for the ANSF.
Afghans in the lead
On 18 June 2013, President Karzai announced the start
of the fifth and final tranche of the security transition
process agreed in 2010. Afghan forces are in the lead
for security across the entire country. During the first
fighting season in which it has had the lead, the ANSF
demonstrated its capacity to provide security for the
Afghan population. The ANSF conducted 95 per cent of
the conventional operations and 98 per cent of special
operations in Afghanistan. These achievements in 2013
built confidence within the Afghan forces and among the
Afghan people.
The Afghans are now firmly in the lead. And in line with
this shift in requirements and responsibilities, ISAF
forces have begun to draw down. At the beginning of
2013, approximately 105,000 personnel and 184 bases
or facilities comprised ISAF’s presence in Afghanistan.
By the end of the year, there were approximately
75,000 personnel and 88 bases and facilities. At the end
of 2013, the only unilateral actions taken by ISAF were
for its own security, for route clearance to maintain its
own freedom of movement, and for the redeployment of
equipment and vehicles no longer required.
Similarly, Provincial Reconstruction Teams (PRTs), set up as
one mechanism to channel development aid and assistance
in Afghan provinces, are evolving and gradually closing as
local Afghan authorities are able to take over responsibility
for these efforts in each province. During 2013, the number
5
of active PRTs was reduced from twenty-two to four. These
last four PRTs will be closing in 2014.
The ANSF, which includes the Afghan National Army
(ANA), the Afghan National Police (ANP) and the Afghan
Air Force (AAF), is now capable of a wide range of
operations: large and small, ground and air, responsive
and preventive. In 2013, the Afghan forces led a number of
joint and combined arms operations, including Operation
Seemorgh, the largest such endeavour ever undertaken
by the ANSF. During this operation the AAF and ANA
worked together to support troop movements, re-supply
fielded forces, and conduct casualty evacuation across
Afghanistan. While this kind of large-scale operation is not
regularly called for in counter-insurgency, the skills involved
in planning and carrying out these operations can apply in
preparation for election support or in response to natural
disasters and build confidence in and among the ANSF.
Many of the challenges the Afghan forces face require
smaller, specialised responses. With ISAF support, the
ANSF is working to ensure that it has the right tools
and structures to meet these challenges. Within the
ANP, for example, there are units specialised in counter-
narcotics, counter-terrorism, and crisis response in urban
environments. Special operations forces within the ANA
are trained to interact with local populations and include
female soldiers, who are well-placed to interact with
women and children.
While ground forces comprise the majority of
Afghanistan’s security apparatus, airborne capabilities
are an essential component of the ANSF. The size of the
Afghan fleet grew during 2013 with the addition of two
C-130 transport aircraft and 12 Mi-17 helicopters that will
enable Afghanistan to better support the movement of
troops and equipment throughout the country.
Training a sustainable force
When ISAF’s mission began in 2001, there were no
unified Afghan National Security Forces. The ANSF now
Afghanistan: transition tranches 1-5
6
includes approximately 350,000 personnel, consisting of
six ANA combat corps, a special operations command,
hundreds of ANP units and a growing air force. The
Afghan government has built structures and ministries
that support and complement not only these forces but
the range of functions that contribute to the security and
prosperity of any country.
As agreed in 2010, ISAF has worked to prepare
Afghanistan by training Afghan forces, advising Afghan
officials, and standing shoulder to shoulder with Afghans
as they build the capabilities and gain the experience
that will support their future security. During 2013, the
focus of ISAF support was on building the systems,
processes and institutions necessary to make the gains
to date sustainable. This included capacity-building work
within the government and in the military. As part of this
support, 375 Security Force Assistance Teams provided
advice and assistance to Afghan army and police units,
and training was provided to nearly 22,000 members of
the Afghan forces.
Photo: MCpl Frieda Van Putten, Canadian Armed Forces
As the Afghan forces are increasingly capable of
providing security, they are also providing more of their
own training. In 2013, over 90 per cent of training was
provided by the Afghans, often in their own languages.
And as transition continues, the structures through which
NATO provides training are also being adapted. Since
2009, the NATO Training Mission in Afghanistan (NTM-A)
has served as the umbrella for NATO and national
institutional training efforts; in 2013 it was integrated into
the ISAF Joint Command.
Part of what NATO offers through its training is lessons
from its own experience. During over a decade in
Afghanistan, ISAF has worked to prevent civilian
casualties. That experience is shared with the Afghans
and the lessons learned are incorporated into the training
that their forces receive.
Because of threats posed by improvised explosive
devices (IEDs), NATO has developed methods to detect
and destroy these weapons. Throughout 2013, NATO
improved its ability to detect and neutralise IEDs, clear
affected routes and protect vehicles, personnel and
structures. These lessons are also being adopted by the
ANSF and incorporated into their training. Compared to
the 2012 fighting season, the 2013 fighting season in
Afghanistan saw a 22 per cent drop in IED incidents.
In 2013, over 90 per cent
of training was provided
by the Afghans
In addition to instruction on technical skills and sharing
of lessons learned, Afghan forces and ministries received
training related to the international norms endorsed by
the United Nations (UN), including on human rights and
gender sensitivity.
ISAF and the Office of the NATO Senior Civilian
Representative work with Afghan security ministries,
with the international community and with local and
international non-governmental organisations to
coordinate efforts aimed at women’s empowerment.
In 2013, ISAF welcomed its highest-ranking gender
adviser, a brigadier general, who will help to consolidate
these efforts and support further progress. ISAF already
includes training on gender issues for the ANSF and
supports the recruitment and retention of women in the
security sector. There are currently over 2,000 women
in the ANSF, a 10 per cent increase since 2012.
In preparation for the 2014 elections, ISAF is working with
Afghan officials to ensure that there are sufficient numbers
of female personnel to support the voter registration
process and to provide support at the polling stations.
The ANSF has become an organised and professional
force, with progress outpacing earlier estimates, and has
achieved impressive standards in a short time under difficult
circumstances. While violent incidents, including high-profile
attacks, continued in 2013, the Afghan forces demonstrated
that they can react to those incidents quickly, efficiently, and
increasingly without direct ISAF assistance.
7
Looking ahead
The conclusion of ISAF at the end of 2014 will mark
the opening of a new chapter in NATO’s relationship
with Afghanistan. At the Chicago Summit in 2012, the
Afghan government welcomed NATO’s offer to deploy
a follow-on mission when ISAF concludes. The aim of
this new mission, Resolute Support, is to continue to
support Afghanistan as it develops the self-sustaining
capability to ensure that it never again becomes a safe
haven for international terrorism.
At the meeting of NATO Defence Ministers in June
2013, a detailed concept for the new mission was
endorsed, which guides NATO military experts in their
operational planning. Resolute Support will not be a
combat mission; this train, advise, and assist mission
will focus its efforts on national and institutional-level
training, to include the higher levels of army and police
command. Provided that a proper legal framework is in
place, Resolute Support will begin in January 2015.
Beyond ISAF and the planned Resolute Support
mission, NATO is building a formal partnership
with Afghanistan, working on a range of issues
that contribute to the development of a stable and
prosperous country. In 2013, areas of cooperation
included development of the civil aviation sector,
facilitation of internet connectivity for Afghan universities,
support for programmes to develop professional
military education, and efforts to build integrity in the
management of ministries. This Enduring Partnership,
announced at the Lisbon Summit in 2010, is the basis
upon which NATO is widening its cooperation with
Afghanistan, developing a partnership similar to those
that NATO has with numerous other countries as part of
the Alliance’s efforts toward cooperative security.
NATO’s partnership with Afghanistan is based on
mutual respect and accountability. The international
community, of which NATO is a part, has made an
enormous investment in Afghanistan and has pledged
its long-term support. In return, the Government of
Afghanistan has also made clear commitments: to hold
inclusive, transparent and credible elections; to fight
corruption and improve good governance; to uphold
the constitution, particularly as regards human rights;
and to enforce the rule of law. The ongoing efforts of the
Government of Afghanistan to meet its commitments
will pave the way for the continued support of the
international community in the years to come.
Kosovo
2013 was a year of progress toward creating a more secure
environment in Kosovo, where NATO and its operational
partners continue to fulfill the UN-mandated mission. The
benefits of that secure environment are increasingly evident.
Belgrade and Priština signed a landmark agreement on
19 April 2013, providing a political way forward to overcome
persistent disagreements. The agreement, facilitated
by the European Union, covers a wide range of issues
supporting a normalisation of relations and improvements
in the northern part of Kosovo. NATO played an important
role in this agreement, with both parties requesting that
NATO support the implementation. The NATO-led Kosovo
Force, KFOR, remains a key enabler of the political process,
providing guarantees to both parties of a safe and secure
environment. When there were attacks on polling stations
in north Mitrovica in November, KFOR deployed quickly to
the area, later supporting a re-run of the elections. KFOR
also ensured freedom of movement on the routes used to
transport election ballots to the counting centre.
The process of “unfixing” properties with designated special
status in Kosovo – transferring their protection from KFOR
to local authorities – continued in 2013. In September,
the responsibility for the protection of the Serb Orthodox
Patriarchate in Peć/Peja was transferred from KFOR to local
Kosovo police forces. The Patriarchate was the eighth site
to be unfixed, from nine sites originally designated.
In July 2013, the North Atlantic Council declared full
operational capability of the Kosovo Security Force (KSF).
The KSF is a multi-ethnic, civilian-controlled, lightly armed
professional force. Unlike the police, the KSF is primarily
responsible for civil protection, disposing of explosive
ordnance, fire fighting and other humanitarian assistance
tasks. The Alliance continues to support the KSF in
this new phase of its development and will continue to
support peace in Kosovo according to the UN mandate.
8
Counter-piracy
2013 marked a significant reduction in pirate activity
off the Horn of Africa and in the Gulf of Aden. There
were no successful attacks in the area in 2013. The
presence of the international navies off the coast
of Somalia has been a determining factor, together
with measures taken by the international merchant
shipping community.
With the global annual impact of Somali piracy
estimated at US$18 billion by the World Bank, efforts
to counter piracy are an important investment.
Throughout 2013, NATO continued to deter and
disrupt pirate attacks and protect vessels in the region,
working closely with other international actors. In the
framework of Operation Ocean Shield, NATO forces
cooperate with the EU-led Operation Atalanta, with
US-led Combined Maritime Forces, and with countries
such as China, Japan and Russia. This collective effort
has allowed the international community to maintain
pressure on Somali pirates and strengthen partnerships
in the maritime domain.
While these efforts have yielded positive results in the
short term, they cannot address the root causes of
piracy ashore. For a lasting solution, more work needs
to be done in the area of regional capacity-building.
Although not in the lead in these efforts, NATO is
committed to continuing to provide expertise in this field.
NATO support to Turkey
In November 2012, repeated violations of Turkey’s territory
from Syria, along NATO’s southeastern border, led to a
request from Turkey for Alliance support. NATO Foreign
Ministers agreed to deploy Patriot missiles to augment
Turkey’s air defence capabilities, helping to defend and
protect Turkey’s population and territory and to contribute
to the de-escalation of the crisis along NATO’s border.
By early 2013, six defensive Patriot missile batteries
were operational in Turkey helping to protect Turkish
citizens from possible ballistic missile attacks. As part of a
regular review of deployment in November, Allies agreed
to maintain this support in 2014. The command and
control of the Patriot missile batteries rests with the NATO
Command Structure, and NATO continues to keep the
situation in Syria under close review.
Piracy incidents
2008-2013
0
20
40
60
80
100
120
140
2008 2009 2010 2011 2012 2013
Pirated - Where pirates
gain control of the vessel
and crew.
Attack - Where pirates
fire at or make contact
with a vessel in an attempt
to board.
Approach - Where the visibility
of weapons and ladders means
pirate intent is clear, but an attack
is not conducted.
Disruption - Where military
forces intercept a pirate
group and remove
their capability to conduct
further acts of piracy.
Note: Disruptions in this chart occurred before pirates could attack or approach a vessel. Disruptions after piracy incidents are not included since that would imply more pirate activity than was actually occurring.
Figures for piracy incidents involve vessels greater than 300 tons engaged on international voyages as defined in Regulation 19 of Chapter V of the Safety of Life at Sea (SOLAS) Convention of the
International Maritime Organization.
Statistics provided by NATO's Maritime Command Headquarters, Northwood, United Kingdom − the command leading NATO's counter-piracy operation.
9
Today’s global challenges require a cooperative
approach to security. Complementing the close
relationships among NATO member countries,
partnerships are an increasingly important part of the
Alliance’s core business. NATO has actively engaged
with partners for over two decades. As the security
environment has evolved, and as the number of
countries and institutions working with NATO has
grown, so have the Alliance’s approaches to and
mechanisms for working with partners.
In 2010, NATO leaders agreed that the promotion of
Euro-Atlantic security is best assured through a wide
network of partner relationships with countries and
organisations around the globe. They recognised the
value of partners’ contributions to operations and
the importance of giving those partners a structural
role in shaping strategy and decisions on NATO-led
missions to which they contribute.
To expand the areas of cooperation with partner
countries and organisations and facilitate increased
dialogue, Allies endorsed a new partnership policy
in 2011. Since then, one of NATO’s aims has
been to improve flexibility so that partners can
easily join political consultations and integrate into
NATO operations on the basis of their individual
interests and their specific capabilities. In 2013,
NATO engaged with more partners in more
substantive areas than ever before.
Extending partnership networks
Middle East and North Africa
Throughout 2013, the Alliance’s engagement in the
Middle East and North Africa continued to develop
through and beyond the established frameworks of the
Mediterranean Dialogue and the Istanbul Cooperation
Initiative. In October, following preparatory discussions
among experts in Tripoli and Brussels, NATO Defence
Ministers agreed to respond positively to a request for
assistance from Libya. Specifically, Libya asked NATO
to assist the country in strengthening its security and
defence sector. This engagement signals the Alliance’s
commitment to projecting stability in its neighbourhood
by helping to build local capacity and foster accountable
and effective security institutions.
In September, NATO and Djibouti agreed to develop
closer cooperation that includes the establishment of
a liaison office in support of NATO’s counter-piracy
operation, Ocean Shield. Despite civil unrest in Egypt,
NATO continued its training programme in landmine
detection. And NATO is working with Mauritania to
establish a national operational coordination centre to
strengthen national civil protection services.
Asia-Pacific
In 2013, NATO continued to build its relations with key
partners in the Asia-Pacific. In April, NATO and Japan
Broadening partnerships for global security
2010 2011 2012
Five non-NATO
countries
participate in
the NATO-led
operation, Unified
Protector, in
Libya: Jordan,
Morocco, Qatar,
Sweden and
the United Arab
Emirates.
M
a
r
c
h
NATO and
Australia commit
to developing
a stronger
relationship through
the signing of
a Joint Political
Declaration and,
later, adopt a
new cooperation
programme.
J
u
n
e
ISAF troop
contributor
Mongolia adopts
a programme
of cooperation
with NATO
covering areas
such as crisis
management,
capacity-
building and
interoperability.
M
a
r
c
h
Leaders from
the 50 countries
contributing
to ISAF, joined
by President
Karzai and
representatives
from Russia,
Japan, Pakistan,
Central Asian
states, the UN
and the EU, meet
during NATO’s
Chicago Summit.
M
a
y
New Zealand
focuses on
cyber defence,
disaster relief,
crisis management
and joint education
and training in its
new programme
of cooperation
with NATO.
J
u
n
e
NATO launches
a more flexible
partnership policy
and operational
partners are
given a greater
role in shaping
decisions related
to the operations
to which they
contribute.
A
p
r
i
l
N
o
v
e
m
b
e
r
NATO adopts a
broader approach
to partnership in
its new Strategic
Concept, opening
the way to deeper
cooperation with
a wider network
of partners.
NATO and
Afghanistan sign
a Declaration
on Enduring
Partnership.
10
signed a Joint Political Declaration, highlighting their
shared strategic interests in promoting global peace,
stability and prosperity, and outlining areas for increased
cooperation. NATO and Japan cooperate broadly in
Afghanistan, where Japan has been a catalyst for and
leading provider of financial support and development
assistance. Other areas of cooperation include
coordination in crisis management and in dealing with
challenges including disaster relief, terrorism, piracy
and cyber attacks. April 2013 also marked the first visit
of a NATO Secretary General to the Republic of Korea,
a valuable contributor to the ISAF mission which is also
interested in expanding cooperation with the Alliance.
NATO’s partnerships in the Asia-Pacific are grounded
in a global perspective of today’s security challenges.
NATO’s partners in the Asia-Pacific region, which also
include Australia, New Zealand, and Mongolia, have
been valuable troop contributors to the International
Security Assistance Force (ISAF) in Afghanistan. Building
on these experiences in the field, NATO coordinates with
these partners to retain the ability to work together in
operations while expanding cooperation in other areas,
including counter-terrorism and cyber defence. These
initiatives complement expanding NATO ties to other
countries of the Asia-Pacific region, including Malaysia
and Singapore. Senior staff from NATO and China
continued their informal security dialogue in 2013.
Countries aspiring to join NATO
Particularly close relationships are maintained with the
four partner countries that aspire to NATO membership
– Bosnia and Herzegovina, Montenegro, the former
Yugoslav Republic of Macedonia*, and Georgia. In
2013, good progress was made in implementing the
reforms necessary to meet the Alliance’s standards,
even if further progress is required for these countries to
achieve their membership aspirations. Specific areas of
work include: registering immovable defence properties
as state property in Bosnia and Herzegovina; bringing
security agencies up to NATO standards and addressing
corruption in Montenegro; and continuing progress toward
civilian and military reform goals as set out in the Annual
National Programme in Georgia. An invitation to the former
Yugoslav Republic of Macedonia* will be extended as soon
as a mutually acceptable solution to the issue over the
country’s name has been reached with Greece.
Russia
The 2010 Lisbon Summit launched a new phase in
relations between NATO and Russia, with agreements to
do more together on Afghanistan, enhance training on
counter-narcotics, and fight terrorism. In 2013, practical
cooperation grew, despite continuing disagreements on
a number of issues including missile defence. Russia
continued to provide important transit facilities for NATO
and partner forces in Afghanistan, and progress was
made in counter-narcotics cooperation. NATO and
Russia also sustained their joint support to the Afghan
Air Force through the NATO-Russia Council Helicopter
Maintenance Trust Fund. In April, the second phase of
the project expanded the support provided to the Afghan
forces, and at the end of 2013, 40 Afghan maintenance
staff had completed initial training.
2013
Iraq formally
enters NATO’s
partnership family
with the signing
of a cooperation
accord with
the Alliance.
S
e
p
t
e
m
b
e
r
The NATO
SILK-Afghanistan
internet
connectivity
programme shifts
from satellite
to fibre-optic
communications.
M
a
y
Japan
– a long-standing
contributor and
donor to NATO
operations –
signs a Joint
Political
Declaration with
the Alliance.
A
p
r
i
l
The helicopter
maintenance
project funded by
NATO and Russia
is expanded to
help the Afghan
Air Force develop
the ability to
operate and
maintain its fleet
of helicopters
independently.
A
p
r
i
l
Military-to-military
cooperation is
strengthened
with Pakistan.
M
a
y
First-ever visit
of a NATO
Secretary General
to the Republic of
Korea.
A
p
r
i
l
S
e
p
t
e
m
b
e
r
The Republic
of Korea and
NATO step up
cooperation
while, in parallel,
Seoul continues
to contribute
to ISAF
in Afghanistan.
* Turkey recognises the Republic of Macedonia with its constitutional name.
11
2013
In December 2013, NATO and Russia agreed to launch
a new trust fund project for the safe disposal of obsolete
and dangerous ammunition in the Kaliningrad region. The
first phase will focus on the disposal of tens of thousands
of obsolete bombs and shells, making the area safer
for those who live there and creating the conditions for
former military sites to be converted to civilian use.
Photo: NATO-Russia Council
Further progress was made on counter-terrorism. In
September, NATO and Russian fighter aircraft flew
together during a live counter-terrorism exercise, Vigilant
Skies 2013, where the capacity to respond to the hijacking
of civilian aircraft in mid-air was tested. This was preceded,
in early summer, by the testing in real-life conditions of the
STANDEX project technology developed jointly by NATO
and Russian scientists to detect explosives concealed
on suicide bombers in public spaces with particularly
high transit rates such as airports and train stations. This
technology is now under commercial development.
International organisations
Cooperation with other international organisations has
become integral to NATO’s crisis management. In 2013,
the Alliance worked to reinforce links with other key
regional and global institutions. In September, NATO and
the United Nations (UN) marked five years of enhanced
partnership since the signing of the Joint Declaration
on UN/NATO Secretariat Cooperation in 2008. These
five years have been characterised by growing practical
cooperation and an increasingly effective political
dialogue between the two organisations to support
regional capacity-building and crisis management, with a
strong focus on Afghanistan.
NATO and the European Union continued their close
cooperation in 2013. In December, NATO’s Secretary
General addressed the European Council during their
meeting on defence. This was the first address by a
NATO Secretary General to the European Council. This
high-level engagement was matched by cooperation
on the ground in Afghanistan, Kosovo, and Bosnia and
Herzegovina; structured dialogue continued at the staff
level to exchange information and avoid duplication.
Similar staff-to-staff contacts also continued with the
Organization for Security and Co-operation in Europe
and with a number of other key organisations, such as
the League of Arab States, the Gulf Cooperation Council,
and the International Committee of the Red Cross.
NATO’s planning and capacity-building support to the
African Union Mission in Somalia also continued in 2013,
including with a small NATO military liaison team at the
African Union Headquarters in Addis Ababa, Ethiopia.
The North Atlantic
Council visits
Georgia, which is
a top non-NATO
troop contributor
in Afghanistan.
J
u
n
e
NATO agrees
to establish an
advisory team
specialised
in defence
institution building
for Libya, at
the request
of the Libyan
Prime Minister.
O
c
t
o
b
e
r
Djibouti and
NATO decide to
develop closer
cooperation in
efforts to fight
piracy, including
through the
establishment of
a liaison office.
S
e
p
t
e
m
b
e
r
Russia and
several NATO
members test
their real-time
capacity to
detect and direct
the response to
a civilian aircraft
hijacked by
terrorists in the
air, in exercise
Vigilant Skies.
S
e
p
t
e
m
b
e
r
A Ukrainian
frigate joins
Operation Ocean
Shield off the
Horn of Africa –
the first time a
partner country
deploys as part of
NATO’s counter-
piracy operation.
O
c
t
o
b
e
r
Ukraine
engages in the
modernisation
of its military
education, in
partnership with
NATO. Of the
many educational
programmes the
Alliance embarks
on with partner
countries, this
one is by far
the biggest.
J
u
l
y
J
u
n
e
NATO and the
UN join efforts
in supporting
children affected
by armed conflict
and launch
an e-learning
training course to
raise awareness
among troops.
12
Remaining connected
In 2013, the Alliance updated its Political-Military Framework
which ensures that partners can participate more effectively
in Allied assessments, planning, and decision-making on
current and potential operations. This and other measures
build on the experiences of partner country involvement in
NATO-led operations in Afghanistan, Kosovo, Libya and
the counter-piracy operation, Ocean Shield. Through these
experiences, NATO and its operational partners improved
their political consultations and gained higher levels of
interoperability. To secure these gains, NATO’s partners
will be more systematically integrated into NATO’s regular
training and exercise programmes.
As part of these efforts, NATO is fostering partner
participation in the NATO Response Force (NRF), NATO’s
rapid-reaction force. In 2013, Sweden joined the NRF
alongside Finland and Ukraine, while Georgia pledged to
make forces available to the NRF in 2015. In the autumn,
four partners participated in the Alliance’s largest exercise
of the last seven years, Steadfast Jazz, which served to
certify the NRF rotation for 2014.
Partners also participated in other major exercises in
2013. One example is Capable Logistician, which was
sponsored by the Czech Republic and conducted in
Slovakia in June 2013. Thirty-five countries, including
nine partner countries, participated in this major logistics
field exercise that addressed support activities as
diverse as movement and transportation, water supply,
infrastructure engineering and smart energy.
NATO’s partners will
be more systematically
integrated into NATO’s
regular training and
exercise programmes
Education is another area where cooperation expanded in
2013. Through its training programmes, NATO is helping
to support institutional reform in partner countries. Initially,
these programmes focused on increasing interoperability
between NATO and partner forces. They have expanded
to provide a means for Allies and partners to collaborate
on how to build, develop and reform educational
institutions in the security, defence and military domains.
NATO has developed individual country programmes
with Afghanistan, Armenia, Azerbaijan, Georgia, Iraq,
Kazakhstan, Mauritania, Moldova, Mongolia, Serbia,
Ukraine and Uzbekistan.
						■
Finland, Sweden,
the former
Yugoslav Republic
of Macedonia*
and Ukraine
participate in
Steadfast Jazz,
a large-scale joint
exercise aimed at
testing the NATO
Response Force.
N
o
v
e
m
b
e
r
NATO supports
the OSCE in
running the
municipal
elections in
Kosovo.
N
o
v
e
m
b
e
r
First address by a
NATO Secretary
General to the
European Council.
D
e
c
e
m
b
e
r
O
c
t
o
b
e
r
In a joint effort to
prevent suicide
attacks in public
areas, NATO and
Russian experts
complete the
first phase of a
project for the
real-time stand-
off detection
of explosives
(STANDEX).
* Turkey recognises the Republic of Macedonia with its constitutional name.
13
Modern defence
S
ince the end of the Cold War, NATO’s forces have
undergone a dramatic transformation. Armour-heavy
land forces previously prepared for the defence
of continental Europe are now capable of being
deployed and sustained over great distances in diverse roles
and in challenging, often unfamiliar environments. Many have
been re-equipped with wheeled armoured vehicles that have
greater mobility, as well as protection against land mines and
improvised explosive devices. A new generation of medium
transport helicopters facilitates the rapid movement of ground
forces and their supplies.
Allies’ air forces, once tied logistically to their home
airbases, are now able to quickly deploy overseas. This
is due, in part, to the acquisition of deployable airbase
logistic support modules, as well as the procurement of
larger, longer-range transport aircraft and air-to-air refuelling
tankers to give combat aircraft longer reach. Allied navies
have improved their capacity for long-term deployments
and for supporting joint operations from the sea as a result
of the development and introduction into service of larger,
more capable aircraft carriers and large amphibious ships.
All services are also better integrated to contribute to
a comprehensive approach to stabilisation operations.
These efforts to make NATO forces more deployable,
flexible and agile have accelerated in recent years with
the NATO-led operation in Afghanistan, Operation Unified
Protector in Libya and the counter-piracy operation,
Ocean Shield. It will be essential for Allies to maintain
these hard-won gains in deployability as the operational
tempo varies in the years to come.
Delivering modern defence requires securing cutting-
edge capabilities and training forces to operate
seamlessly together. With the agreement of the Strategic
Concept in 2010, Allies affirmed the primacy of their
commitment to defence of Allied territory and populations
and deterrence against potential threats. To ensure
the credibility of this commitment, Allies pledged to
maintain and develop a range of capabilities. Acquiring
these capabilities and forces in a climate of prolonged
austerity is not easy but remains essential. Through a
series of initiatives, NATO is on track to provide innovative
solutions to deliver a modern defence.
In 2011, the Secretary General launched the Smart
Defence initiative, promoting prioritisation, specialisation
and multinational approaches to acquisition. At the
Chicago Summit in 2012, NATO Heads of State and
Government endorsed the initiative and agreed on
a package of 22 Smart Defence projects. They also
endorsed the Connected Forces Initiative (CFI) to sustain
and enhance the high level of interconnectedness and
interoperability Allied forces have achieved in operations
and with partners. In 2013, Allies completed two Smart
Defence projects, broadened the portfolio of projects, and
made considerable progress on those already underway.
Within the framework of CFI, Allies began to implement
plans to revitalise NATO’s exercise programme.
In 2010, Allies adopted a package of critical capabilities
that included the Alliance Ground Surveillance (AGS)
system, enhanced exchange of intelligence, surveillance
and reconnaissance data, and improved defences
against cyber attacks. NATO leaders also agreed to
develop the capability to defend their populations
and territories against ballistic missile attack. Steady
progress has been made in each of these areas. In 2012,
the procurement contract was signed for AGS, Allies
endorsed an initiative on Joint Intelligence, Surveillance,
and Reconnaissance (JISR), improvements were made to
NATO’s cyber defence capabilities, and Allies declared an
interim NATO ballistic missile defence capability. In 2013,
the first NATO AGS aircraft was produced, JISR concepts
were refined and advanced, NATO’s Computer Incident
Response Capability was improved, and the command
and control structures for NATO’s missile defence system
were enhanced.
Smart solutions to security challenges
14
NATO Forces 2020
At the Chicago Summit in 2012, NATO adopted the goal
of NATO Forces 2020: a coherent set of deployable,
interoperable and sustainable forces equipped, trained,
exercised and commanded to operate together and
with partners in any environment. Two key programmes
support this goal: the Smart Defence initiative and the
Connected Forces Initiative.
With the Smart Defence initiative, NATO provides a
framework for using scarce resources more efficiently by
promoting the joint acquisition of important capabilities.
This approach builds on existing mechanisms for
cooperation among Allies, and promotes prioritisation,
specialisation and multinational approaches to acquisition.
The Connected Forces Initiative is another catalyst
for achieving a modern defence and delivering
NATO Forces 2020. While Smart Defence addresses
the acquisition of some of the key capabilities required
by the Alliance, the Connected Forces Initiative focuses
on the interoperability of NATO’s forces – their ability to
work together. It aims to ensure that Allies and partners
retain the benefits of the experience gained while working
together during multinational deployments to Afghanistan,
Libya, the Horn of Africa and the Balkans.
In addition to these initiatives, NATO is pursuing
programmes to improve its capabilities in certain key
areas – specifically in the fields of intelligence, surveillance
and reconnaissance (ISR) capacities, ballistic missile
defence, and cyber defence.
Smart Defence
Many of the modern defence capabilities required to face
today’s challenges are extremely expensive to develop and
acquire. It is increasingly prohibitive for individual Allies to
obtain specific capabilities on their own. Moreover, it does
not always make good economic sense for an individual
Ally to acquire these expensive technologies when there
are mechanisms available for a cooperative approach.
NATO’s Smart Defence initiative builds on the strengths
of the Alliance to deliver essential capabilities while
reducing unit costs. Drawing on existing mechanisms,
it aims to better coordinate defence efforts by aligning
national and Alliance capability priorities. And it provides
a platform for Allies to build on their individual strengths
through coordination with the Alliance and each other, thus
achieving specialisation by design rather than by default.
Launched in early 2011, Smart Defence has begun to
deliver concrete savings for NATO Allies. Two projects
were completed in 2013. Through the US-led Helicopter
Maintenance project, Allies work collectively to maintain
deployed helicopters in Afghanistan instead of maintaining
them individually. Participating countries report saving
millions of euros in maintenance costs while reducing
repair time by up to 90 per cent. The other Smart Defence
project completed in 2013 facilitates proper disposal of
military equipment that countries no longer need. The
NATO Support Agency has developed a way for countries
to use off-the-shelf legal and financial tools that significantly
reduce the costs of disposal. The clear benefits of these
coordinated approaches have motivated national and
NATO officials to pursue collective solutions in other areas.
Smart Defence has
begun to deliver concrete
savings for NATO Allies
In 2013, Allies broadened the portfolio of Smart Defence
projects and made considerable progress on a number of
projects already underway.
Multinational Cyber Defence Capability Development: this
project improves the means for sharing technical information
and promotes awareness of threats and attacks. Participating
countries signed a Memorandum of Understanding in 2013,
providing the basis for future progress.
Pooling CBRN Capabilities: this project will pool existing
chemical, biological, radiological and nuclear (CBRN)
protection equipment and forces to create a multinational
CBRN battalion framework and conduct multinational
training and exercises. Several CBRN projects exist and are
organised around different regional groupings. They aim to
generate synergies and increase interoperability.
Multinational Aviation Training Centre: building on
operational experience gained in Afghanistan, this project
will provide top quality training for helicopter pilots and
ground crews. The training will focus on the deployment
of helicopter detachments in support of NATO operations,
as well as preparing Aviation Advisory Teams that provide
training for the Afghan National Security Forces.
Multinational Military Flight Crew Training: this project
aims to rationalise pilot training to reduce costs, as well
15
as the number of training facilities required by Allies.
It will facilitate closer cooperation and ultimately
improved interoperability.
Multinational Joint Headquarters Ulm: this project is
transforming an existing German joint command into
a deployable multinational joint headquarters. Officially
opened in July 2013, it addresses NATO’s deployable
headquarters needs in a multinational context, facilitating
enhanced coordination while reducing costs.
Pooling Maritime Patrol Aircraft: by pooling a range of
maritime patrol aircraft capabilities owned by Allies, this
project will allow more flexible use of assets. It will lead to
a more efficient allocation of assets to specific missions
and tasks and continued access to this capability for Allies
that are significantly reducing their inventories. A technical
agreement has been in place since January 2013 and
the handover to Allied Maritime Command (Northwood,
United Kingdom) for activation is scheduled for July 2014.
NATO Universal Armaments Interface: in 2013, further
progress was made to standardize weapons integration on
fighter aircraft. This project will provide Allies with greater
flexibility for using ammunition in operations. In addition, it
will reduce future costs, increase interoperability and reduce
the time needed for the integration of new weapons.
NATO plans to build on initial achievements, pursuing
projects at the high end of the capabilities spectrum. In this
respect, at their meeting in October 2013, NATO Defence
Ministers discussed the capability areas they would like to
develop in the context of more demanding Smart Defence
projects. This work will continue into 2014 and beyond.
Connected Forces Initiative
The Connected Forces Initiative (CFI) aims to enhance
the high level of interconnectedness and interoperability
Allied forces have achieved in operations and with
partners. CFI combines a comprehensive education,
training, exercise and evaluation programme with the use
of cutting-edge technology to ensure that Allied forces
remain prepared to engage cooperatively in the future.
In February 2013, NATO Defence Ministers endorsed plans
to revitalise NATO’s exercise programme; implementation
began in October. These plans set the course for a more
rigorous multi-year training schedule to ensure NATO and
partner forces retain the ability to work efficiently together.
They broaden the range of exercise scenarios and increase
the frequency and the level of ambition of exercises. This will
allow countries to continue to develop their operational
compatibility, and provide an opportunity to test and validate
concepts, procedures, systems and tactics. Allies are also
encouraged to open national exercises to NATO participation,
adding to the opportunities to improve interoperability.
CFI includes a technology element to ensure that Allies
identify and exploit advances in this area. It encompasses
a range of solutions to seamlessly connect forces during
training, exercises and, most importantly, when working
side-by-side in operations. For instance, building on
NATO’s Afghan Mission Network, which interlinks the
communication and information systems of Allied and
partner forces in Afghanistan, NATO is developing a Future
Mission Network, which will ensure that NATO has a
similar capability for all of its future operations. This project
exemplifies the underlying logic of CFI – to preserve the
gains achieved in operations as the Alliance moves forward.
NATO has already begun to increase the scope of
multinational exercises. In November 2013, NATO
conducted its largest live exercise since 2006 in a collective
defence scenario. Steadfast Jazz brought together
thousands of personnel from Allied and partner countries to
train, test, and certify the units serving in the 2014 rotation
of the NATO Response Force (NRF). This exercise was
conducted at sea, in the air, and on the territories of
Estonia, Latvia, Lithuania and Poland. It incorporated a
headquarters component provided by Allied Joint Force
Command Brunssum (The Netherlands) to test the new
NATO Command Structure.
Allies agreed in 2013 to hold a large NATO exercise
after the conclusion of the ISAF mission in Afghanistan.
This major exercise involving partners will take place in
2015 and will be hosted jointly by Spain, Portugal and
Italy. A comprehensive programme of exercises is being
developed for 2016 and beyond.
16
The NRF, activated in 2003, is NATO’s most deployable
force, able to operate globally and react to a wide
spectrum of challenges. Made up of air, land, maritime,
special operations forces elements and component
command headquarters from across the Alliance, it
can be appropriately scaled to quickly meet any threat,
providing a targeted and flexible response to crises.
Contributing to the NRF is an important way for Allies
to demonstrate their commitment to the Alliance. Allies
provide troops and component command headquarters
on a yearly cycle, which allows NRF units to build
expertise and lasting relationships between Allies’
forces. Improving the interoperability and readiness of
the NRF is an important element of CFI. It will therefore
be heavily involved in training and exercise programmes
beyond 2013.
Joint Intelligence, Surveillance and
Reconnaissance (JISR)
Intelligence, Surveillance and Reconnaissance
provides the foundation for all military operations and
its principles have been used for centuries. However,
although these principles are not new, the military
technological advances made since NATO operations
began in Afghanistan have meant that surveillance and
reconnaissance can better answer the “what”, “where”,
and “when”. This gives a commander the information
needed to make the best possible decision.
NATO’s JISR initiative aims to provide the Alliance with a
mechanism to bring together data and information gathered
through these and other systems. It will enable coordinated
collection, processing, dissemination and sharing of
this data and information within NATO, maximising
interoperability without hampering the performance of
each system. It will also provide common standards and a
common vision of the theatre of operations.
JISR was endorsed as a NATO initiative at the Chicago
Summit in May 2012. A revised concept was approved in
2013 and measures were agreed to coordinate the strands
of work pertaining to the three main lines of development:
procedures for data sharing, training and education, and
the networking environment. In addition, there is need
for a longer-term JISR strategy; work to that end also
began in 2013. Progress in 2013 built on a technical trial
held in 2012 (Unified Vision 12). This exercise, testing
the interoperability of national systems and developing
pragmatic solutions for improved coordination, was an
important step, and a follow-on exercise is being planned
for 2014. Future NRF exercises will also be used to
continue developing JISR to ensure seamless compatibility
as NATO develops these important capabilities.
NATO Response Force rotations
2003-2013
ESP
29 %
ITA
19 %
FRA
19 %
GBR
19 %
USA***
14 %
TUR
19 %
GBR
19 %
ITA
14 %
DEU/NLD**
9 %
Eurocorps*
9 %
GRC
9 %
ESP
9 %
DNK
5 %
FRA
5 %
NATO
Command
Structure****
57 %
GBR
19 %
DEU
14 %
FRA
10 %
Note: For 2012 and 2013, the rotations lasted 12 months, compared to six months for the period 2003-2011.
* Eurocorps rotations involve a headquarters provided by Belgium, France, Germany, Luxembourg and Spain together.
** Germany and the Netherlands together as part of the HQ 1st German/Netherlands Corps.
*** The United States is the framework nation for HQ Naval Striking and Support Forces, NATO (STRIKFORNATO).
**** The applicable NATO Response Force rotations between 2003 and 2013 were filled by the Allied Air Command HQs Ramstein and Izmir.
Source: NATO
Figures have been rounded off.
Land component HQ Maritime component HQ Air component HQ
17
Alliance Ground Surveillance
As part of JISR, the NATO-owned and -operated
Alliance Ground Surveillance (AGS) capability will
give commanders a comprehensive image of what is
happening on the ground before, during and after an
operation. It is therefore a critical capability that will
enable surveillance over wide areas from high-altitude,
long-endurance, unmanned aircraft.
© Northrop Grummann
The AGS core capability is composed of five Global
Hawk unmanned aerial vehicles and associated fixed and
deployable ground and support segments. Fifteen Allies
are participating in the acquisition of the system that will
be made available to the Alliance in 2017.
Progress in 2013 included the production of the first NATO
AGS aircraft. Additionally, all the requirements for the AGS
project were confirmed in November, opening the way for
the finalisation of design activities scheduled for May 2014,
after which production of the numerous components
of the system can commence. In parallel, Allies have
started work to establish the AGS main operating base at
Sigonella (Italy) and have made significant progress toward
establishing the AGS force, which in time will be manned
by personnel from the Alliance.
Ballistic missile defence
The proliferation of ballistic missiles, carrying
conventional, chemical or nuclear warheads, continues
to pose a grave risk to the Alliance. At the Lisbon Summit
in 2010, NATO agreed to extend its own ballistic missile
defence capability beyond the protection of forces to
include all NATO European populations and territory.
In May 2012 at the Chicago Summit, Allies took a first
step towards operational status by declaring an interim
capability for NATO’s missile defence system.
In 2012 and 2013, NATO built on this interim capability,
working towards a fully operational capacity in the
years to come. Recent efforts enhanced the command
and control structures of both territorial and theatre
missile defence and will significantly increase the
operational value of NATO’s integrated air and missile
defence system. Individual Allies have offered additional
systems, are upgrading national equipment, and are
developing or hosting capabilities that contribute to the
strength of the system.
The US European Phased Adaptive Approach (EPAA)
is a major contribution to the NATO ballistic missile
defence architecture. In early November 2013, the
groundbreaking ceremony for the missile defence facility
in southern Romania was a significant step forward for
Phase 2 of the US EPAA – two of three phases in total.
Phase 4 was cancelled by the US government, with no
impact on the coverage provided for NATO members
on the European continent.
In parallel, NATO and Russia continue to explore
possibilities for cooperation in this domain. In 2013,
discussions made little headway. However, the offer
NATO has made to cooperate with Russia in building
a missile defence architecture that would protect both
NATO and Russia from the growing ballistic missile threat,
still stands. Due to the design and configuration of its
architecture, NATO’s ballistic missile defence system
cannot pose any threat to Russia’s strategic deterrent
forces. NATO-Russia cooperation on missile defence,
however, would raise the partnership to a strategic level
and enhance security across the Euro-Atlantic area.
In 2013, NATO also began discussions and exchanged
information with a number of other partner countries on
NATO’s ballistic missile defence system, and agreed to
continue regular exchanges in the future.
18
Cyber defence
2013 was a year of considerable progress in NATO’s
ability to defend itself against cyber attacks. NATO
has implemented NATO Computer Incident Response
Capability (NCIRC) centralised protection at NATO
Headquarters, Commands and Agencies. This is
a major upgrade of NATO's protection against the
cyber threat. NATO networks in the 51 NATO locations
that make up NATO Headquarters, the NATO Command
Structure and NATO Agencies are under comprehensive
24/7 surveillance and protected by enhanced sensors
and intrusion detection technologies.
While NATO’s primary role in the cyber domain is
to defend its own networks, in 2013 the Alliance
broadened its efforts to address cyber threats. For the
first time, cyber defence has been included in NATO’s
defence planning process. This will help to ensure that
Allies have the basic organisation, capabilities, and
interoperability to assist each other in the event of cyber
attacks. NATO also continued to feature cyber defence
scenarios in its exercises, training, and education.
NATO’s annual Cyber Coalition exercise was held in
November 2013 and included the participation of seven
partner countries and the European Union. During
the exercise, 400 national and NATO cyber defence
experts participated remotely from their locations, and
80 experts participated from Tartu, Estonia where the
exercise was hosted.
Counter-terrorism
NATO’s work to counter terrorism is an area of
continued advancement within the Alliance and with
national and institutional partners, both in the lab
and in the field. Through its 2013 activities, NATO
continued to develop capabilities to protect its soldiers
from many of the devices terrorists use, including
improvised explosive devices. It also pioneered work
in biometrics, non-lethal capabilities, and harbour
security. Operation Active Endeavour, in which NATO
ships are patrolling the Mediterranean and monitoring
shipping to help detect, deter and protect against
terrorist activity, was initiated immediately after 9/11
and is ongoing.
Allies increased exchanges of intelligence and expert
analysis of the evolving terrorist threat. NATO also
increased interaction with the UN Counter-Terrorism
Committee and its Executive Director, and the EU
Counter-Terrorism Coordinator briefed the North
Atlantic Council on developments in Syria related to
international terrorism.
19
Economic pressures on defence spending
Since 2008, economies in Europe and North America
have been challenged by the persisting global economic
crisis. Declining or low-level economic growth among
many member states has increased government budget
deficits, raised the levels of government indebtedness and
prompted tighter constraints on government spending.
The weaker economic performance in Europe and North
America has, in many cases, been reflected in consistently
declining defence spending.1
As economic conditions in many NATO countries have
begun to stabilise, the cuts to defence spending have
begun to level off. However, the need to maintain defence
spending levels will remain crucial in order to retain
the capacity to provide security across the Alliance.
Investment in defence is a long-term requirement; what
may appear to be savings in the near term can have
lasting consequences. Further reductions in defence
spending risk undermining NATO’s efforts to ensure a
modern and capable Alliance.
Sharing responsibilities
Members of NATO are committed to the collective
defence of the Alliance. That mutual commitment is
reflected in the principle that members should contribute
fairly to the provision of the forces and capabilities
1 For all the graphs in this chapter of the report, it should be noted that Albania and
Croatia joined the Alliance in 2009 and that Iceland has no armed forces.
needed to undertake the roles and tasks agreed in
NATO’s Strategic Concept. While there is a critical
difference between what any Ally chooses to invest
in its defence and what it makes available for any
Allied undertaking, overall investment in defence has
implications for any Ally’s ability to share the overall
responsibility. The gaps in defence expenditures within
the Alliance are growing, as illustrated by the pie charts
below. Between 2007 (taken as the pre-crisis baseline)
and 2013, the share of US expenditures has increased
from 68 to 73 per cent. In 2013, the European share
of the total Alliance defence expenditures continued to
decrease as a whole.
Defence in an age of austerity
Alliance real GDP and defence expenditures
Percentage changes from previous year
2007-2013
GDP Defence exp.
-8
-6
-4
-2
0
2
4
6
8
10
12
14
16
2007 2008 2009 2010 2011 2012 2013
%
Source: NATO Defence Planning Capability Review 2013-14, OECD, ECFIN and IMF.
Based on 2005 prices and exchange rates. Estimates for 2013.
Percentage of Alliance defence expenditures
2007
2013
USA
68 %
NATO
Europe
+ Canada
32 %
Italy
2.9 %
Germany
4.7 %
France
6.6 %
Canada
1.8 %
Others
8.8 %
UK
7.3 %
USA
73 %
NATO
Europe
+ Canada
27 %
Italy
2.0 %
Germany
4.7 %
France
4.9 %
Canada
1.5 %
Others
7.4 %
UK
6.6 %
Source: NATO Defence Planning Capability Review 2013-14. Based on 2005 prices and exchange rates. Estimates for 2013.
Note: Figures have been rounded off in the small pie charts.
20
Defence expenditures as a percentage of GDP versus
major equipment expenditures as a percentage of defence expenditures
Major
equipment
exp.
as
%
of
defence
expenditures
Defence expenditures as % of GDP
0
5
10
15
20
25
30
0.0 0.5 1.0 1.5 2.0 2.5 3.0
NATO 2 % guideline
%
%
NATO 20 % guideline
Major
equipment
exp.
as
%
of
defence
expenditures
Defence expenditures as % of GDP
NATO 2 % guideline
0
5
10
15
20
25
30
0.0 0.5 1.0 1.5 2.0 2.5 3.0
%
%
NATO 20 % guideline
Source: NATO Defence Planning Capability Review 2013-14. Based on 2005 prices. Estimates for 2013 except Spain 2012 figure for major equipment.
Note: United States is not included.
2007 2013
It is essential that all Allies contribute to developing the
capabilities that will underpin NATO’s role in the future.
This is possible only if Allies hold the line on defence
spending and focus investment on key capabilities.
Allies have collectively agreed to two guidelines to help
encourage an equitable sharing of roles, risks and
responsibilities. First, members should devote at least
2% of Gross Domestic Product (GDP) to defence.
Second, at least 20% of those funds should be allocated
towards major equipment.
The financial crisis has impacted upon both goals. While
the United States has reduced defence expenditures in
the last five years, reductions made by European Allies
have been more extreme in relative terms. As the graphs
above show, only three members met the 2% guideline
in 2013, down from five in 2007. Moreover, where major
equipment expenditures2
are concerned, many Allies are
falling short of the 20% guideline.
2 Major equipment expenditures also include research and development spending
devoted to major equipment.
Alliance defence expenditures
as a percentage of Gross Domestic Product
2007 and 2013
2007 2013 NATO 2% guideline
0.0
0.5
1.0
1.5
2.0
2.5
3.0
3.5
4.0
4.5
ALB
BEL
BGR
CAN
HRV
CZE
DNK
EST
FRA
DEU
GRC
HUN
ITA
LVA
LTU
LUX
NLD
NOR
POL
PRT
ROU
SVK
SVN
ESP
TUR
GBR
USA
%
Source: NATO Defence Planning Capability Review 2013-14. Based on 2005 prices.
Estimates for 2013.
Alliance major equipment expenditures
as a percentage of defence expenditures
2007 and 2013
2007 2013 NATO 20% guideline
5
0
10
15
20
25
30
%
ALB
BEL
BGR
CAN
HRV
CZE
DNK
EST
FRA
DEU
GRC
HUN
ITA
LVA
LTU
LUX
NLD
NOR
POL
PRT
ROU
SVK
SVN
ESP
TUR
GBR
USA
Source: NATO Defence Planning Capability Review 2013-14. Based on 2005 prices.
Estimates for 2013 except Spain 2012 figure.
21
The negative trend is particularly visible in the two
scatter graphs where the defence expenditures of all
Allies, except those of the United States, feature in
relation to the 2% guideline on defence expenditures
and the 20% guideline on major equipment
expenditures for 2007 and 2013.
Nevertheless, recent efforts by a number of Allies serve
as an important example. Several have effectively
increased their major equipment expenditures over the
last six years, investing in future requirements despite
the pressures of the economic crisis.
Moreover, sharing responsibilities is not only a matter of
the percentage of any country’s GDP spent on defence.
The provision of forces and capabilities to NATO-led
operations and missions is a meaningful demonstration
of Alliance solidarity. Despite budget cuts, contributions
to NATO operations remain strong. European Allies in
particular have taken the lead in a number of operations
and missions, including in Kosovo and Libya. European
Allies have also consistently contributed the bulk of
forces to the NATO Response Force and to Baltic air
policing, as well as to a majority of air surveillance and
interception rotations in Iceland.
						■
Alliance major equipment expenditures
2003-2013
0
50
100
150
200
250
Billion
US$
2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013
United States NATO Europe+Canada NATO Total
Source: NATO Defence Planning Capability Review 2013-14. 2005 prices and exchange rates.
Estimates for 2013.
Air surveillance and interception rotations, Iceland
2008-2013
CAN
12 %
DNK
12 %
DEU
12 %
NOR
12 %
USA
35 %
FRA
6 %
PRT
6 %
ITA
6 %
Source: NATO
Note: Figures have been rounded off.
Air policing rotations, Baltic States
2004-2013
BEL
9 %
DNK
12 %
FRA
12 %
DEU
15 %
NOR
6 %
POL
12 %
USA
9 %
GBR
3 %
NLD
3 %
TUR
3 %
ESP
3 %
ROU
3 %
PRT
3 %
CZE
6 %
22
N
ATO has continually evolved over the last two
decades, building on operational experience,
expanding partnership networks and innovating
to develop capabilities for modern defence.
In 2010, NATO Heads of State and Government agreed
on a new Strategic Concept to guide this current phase of
NATO’s evolution and tasked the Secretary General and the
North Atlantic Council with reforming NATO’s structures.
Since then, NATO has been hard at work to ensure that this
transformation results in an Alliance that is fit for purpose in
addressing 21st century security challenges.
In the years since 2010 there has been significant
progress toward these goals. As agreed by Allies in 2011,
the number of operational entities comprising the NATO
Command Structure has been reduced from thirteen to
seven; fourteen NATO Agencies have been consolidated
into four. Resulting cost savings are already apparent
in 2013 and are expected to increase in the years to
come. In addition to more streamlined structures, a focus
on key priorities has helped a smaller workforce to meet
the changing needs of the Alliance. NATO is on track
to deliver an Alliance that is efficient and effective in its
operations and prepared for the future.
Defence planning
Addressing the challenge of orienting national and
Alliance resources to address new threats has been
central to NATO’s defence policy efforts in recent years.
NATO cannot dictate how Allies allocate their resources,
and it is the Allies (individually or in groups) that
ultimately provide defence capabilities. However, NATO
can facilitate national and multinational efforts in ways
that build on the strengths of the Alliance to ensure
these efforts are harmonised through NATO’s defence
planning process.
The 2010 Strategic Concept laid down the parameters for
the next ten years of planning. Further political guidance
as well as the comprehensive Deterrence and Defence
Posture Review of 2012 provide the framework for the
ongoing work of improving the defence planning process.
In 2013, NATO developed tools to clearly illustrate
the current performance of individual Allies across a
number of areas, as well as wider trends in capability
development over time. NATO forces need to be flexible,
agile and deployable, with all the supporting infrastructure
and logistics this entails so that they can respond to a
variety of threats.
NATO Command Structure
The NATO Command Structure enables NATO to
implement political decisions through the coordination
of military means and is part of what makes the Alliance
unique. These military command and control bodies which
make up the command structure coordinate contributions
from member and partner countries during operations and
exercises. They are permanently manned and ready to
react at very short notice to any contingency.
NATO forces need to
be flexible, agile and
deployable, with all the
supporting infrastructure
and logistics this entails
In 2010, Allies agreed to reform this command structure.
The aim was a leaner, more affordable structure that
would be flexible and more deployable. 2013 was a
year of steady progress toward this goal, with the new
command structure attaining its initial operational capability
in December. The number of operational entities has
been reduced from thirteen to seven. In November 2013,
Allied Joint Force Command Brunssum (The Netherlands)
provided the headquarters component for the major
NATO Response Force exercise Steadfast Jazz. This was
an important demonstration of the Command’s ability to
support a diverse, deployable force, the exercise having
taken place at sea, in the air, and on land, with participants
from Allied and partner countries.
Reforming the Alliance
23
At the end of 2015 when the implementation of the
command structure reform is complete, the manning and
footprint of the overall structure will have been reduced
by one third, resulting in savings of €123 million to the
military budget.
NATO Agencies
NATO Agencies are responsible for a range of services
necessary to support the work NATO does, including
procurement of goods and services as well as logistical
support for current operations. Because of the complex
links between the functions of the NATO Command
Structure and the services provided by NATO Agencies,
planning for and implementation of agency reform has been
coordinated to ensure continuous provision of support.
The aims of the agency reform process agreed in 2011
are improved governance and enhanced efficiency. When
the process began, there were fourteen entities; these
have now been consolidated into four bodies, focused on
support, procurement, communications and information,
and science and technology. This consolidation provides a
better coordinated, more effective structure.
In 2013, agency reform efforts focused on consolidating
services and programmes while preserving the ability to
provide for ongoing operations. Cost-saving programmes
have delivered a five per cent reduction in 2013 and remain
on track for a 20 per cent reduction in coming years.
During 2013, 88 per cent of all agency personnel were
transferred into the new organisations for support,
communication and information, and science and
technology. Work also progressed on the development
of a new procurement body to better integrate existing
acquisition programmes, provide a flexible framework for
future projects and improve cost-effectiveness.
Also in 2013, as part of agency reform, NATO established
the Office of Shared Services, which is working to
rationalise service delivery across NATO bodies. It is
focused on three areas: finance and accounting, general
procurement, and human resources.
NATO Headquarters
NATO’s International Staff numbers just over 1,000,
making up a relatively small but important element of the
Alliance’s overall structure. As part of the broader reform,
and in preparation for the move to a new headquarters,
NATO has been working to streamline the workforce and
modernise the working practices of the International Staff.
By 2018, the size of the International Staff will have been
reduced by nearly 20 per cent. More importantly, dozens
of staff positions have been reassigned to higher priorities.
These efforts to craft a more adaptable civilian workforce
are part of a new human resources policy, implementation
of which began in 2013.
NATO’s International Military Staff, numbering around
500, is also under review. An extensive report was
completed in 2013 that will guide the efforts to refine that
structure so that it, too, is properly equipped to serve the
goals of a 21st century Alliance.
NATO’s committee structure is also part of the
Headquarters reform. NATO members come together in
committee meetings to discuss and decide. Since 2010,
there has been a 65 per cent reduction in the number of
committees – this leaner, more coherent structure allows
for swifter, better integrated responses to tasks delegated
by the North Atlantic Council.
The new NATO headquarters, which is currently under
construction, will provide the Alliance with a modern
base. The current headquarters was designed and built
in the 1960s as a temporary structure for 15 countries.
NATO now has 28 member countries and requires a
facility able to flexibly adapt to shifting priorities.
						■
24
NATO Public Diplomacy Division
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www.nato.int
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