Inside NATO, Consensus Building & Decision Making Presented by: Ratela Asllani, M.A PhD Candidate Ratela Asllani, December 2014

Ratela Asllani, December 2014 Contents Key Pillars of NATO Working Structures Decisions & Consultation Conclusion Ratela Asllani, December 2014

Ratela Asllani, December 2014 1. Key Pillars of NATO A Political Military Alliance Collective Defense The Transatlantic Link The 2010 Strategic Concept Ratela Asllani, December 2014

1.1 A Political Military Alliance Ratela Asllani, December 2014

1.1 A Political Military Alliance NATO’s essential purpose: “safeguarding the freedom & security of its members via political & military means”. POLITICAL - NATO promotes democratic values & encourages consultation & cooperation on defense and security issues to build trust &, in the long run, prevent conflict. MILITARY - NATO is committed to the peaceful resolution of disputes. If diplomatic efforts fail, it has the military capacity needed to undertake crisis-management operations. (Article 5 of Washington Treaty) NATO’s founding treaty - or under a UN mandate, alone or in cooperation with other countries and international organizations. Ratela Asllani, December 2014

Ratela Asllani, December 2014 1.2 Collective Defense Ratela Asllani, December 2014

Ratela Asllani, December 2014 1.2 Collective Defense The principle of collective defense is at the very heart of NATO’s founding treaty. It remains a unique and enduring principle that binds its members together, committing them to protect each other and setting a spirit of solidarity within the Alliance. Collective defense means that an attack against one Ally is considered as an attack against all Allies. The principle of collective defense is enshrined in Article 5 of the Washington Treaty. NATO invoked Article 5 for the first time in its history after the 9/11 terrorist attacks against the United States. NATO has taken collective defense measures on several occasions, for instance in response to the situation in Syria and in the wake of the Ukraine crisis. NATO has standing forces on active duty that contribute to the Alliance’s collective defense efforts on a permanent basis. Ratela Asllani, December 2014

Ratela Asllani, December 2014 1.3 Transatlantic Link Ratela Asllani, December 2014

Ratela Asllani, December 2014 1.3 Transatlantic Link NATO is an alliance of countries from Europe and North America. It provides a unique link between these two continents for consultation & cooperation in the field of defense and security, and the conduct of multinational crisis-management operations. Ratela Asllani, December 2014

Ratela Asllani, December 2014 1.4 The 2010 Strategic Concept Ratela Asllani, December 2014

Ratela Asllani, December 2014 1.4 The 2010 Strategic Concept Lay down the Alliance’s core tasks & principles, its values, the evolving security environment & the Alliance’s strategic objectives for the next decade. Defines NATO’s cores tasks as: collective defense, crisis-management & cooperative security. Ratela Asllani, December 2014

2. Working Structures Subordinates Committees Secretary General (International Staff) Agencies Integrated Military Command Structure Ratela Asllani, December 2014

Ratela Asllani, December 2014 2.1 NATO DELEGATIONS Ratela Asllani, December 2014

Ratela Asllani, December 2014 2.1 NATO DELEGATIONS Each member country has a permanent delegation at NATO’s political headquarters in Brussels. Ratela Asllani, December 2014

Ratela Asllani, December 2014 2.1 NATO DELEGATIONS A status similar to that of an embassy. It is headed by an “ambassador” or “permanent representative”. Being in the same building, have ability to maintain formal & informal contacts with each other, as well as with NATO's International Staff, International Military Staff and representatives of Partner countries, each of which are entitled to have a mission at NATO Headquarters. Effectively, its function is two-fold: to represent its country’s government & contribute to the consultation process, which allows NATO to take collective decisions or actions. They can vary in size & are principally staffed with civil servants from the ministries of foreign affairs and defense. Ratela Asllani, December 2014

Ratela Asllani, December 2014 2.2 Secretary General Ratela Asllani, December 2014

Ratela Asllani, December 2014 2.2 Secretary General Is the Alliance’s top international civil servant. Is responsible for steering the process of consultation & decision-making within the Alliance & ensuring that decisions are implemented. Is also NATO’s chief spokesperson & heads the Organization's International Staff, which provides advice, guidance & administrative support to the national delegations at NATO HQs. Ratela Asllani, December 2014

Ratela Asllani, December 2014 2.2 Secretary General International Staff The IS consists of a staff of 1,000, composed solely of nationals from NATO member countries. It provides advice, guidance and administrative support to the national delegations at NATO Headquarters, Brussels, Belgium. It helps implement all decisions taken at any committee level. The IS is headed by the NATO Secretary General. Ratela Asllani, December 2014

Ratela Asllani, December 2014 The structure of IS The Private Office: includes a director and staff, the Deputy Secretary General, a Policy Planning Unit and the Council Secretariat. Divisions Political Affairs and Security Policy Division Defense Policy and Planning Division Operations Division Defense Investment Division Emerging Security Challenges Division Public Diplomacy Division Executive Management Division Independent offices: NATO Office of Security & the NATO Office of Resources Ratela Asllani, December 2014

2.3 Nuclear Planning Group Ratela Asllani, December 2014

2.3 Nuclear Planning Group Reviews the Alliance's nuclear policy in light of the ever-changing security environment. While the North Atlantic Council is the ultimate authority within NATO, the NPG acts as the senior body on nuclear matters in the Alliance. Discusses specific policy issues associated with nuclear forces and wider issues such as nuclear arms control & nuclear proliferation. All members, with the exception of France which has decided not to participate, are part of the NPG irrespective of whether or not they themselves maintain nuclear weapons. Was founded in December 1966 to provide a consultative process on nuclear doctrine within NATO. It was initially called the Nuclear Defense Affairs Committee. Ratela Asllani, December 2014

2.4 North Atlantic Council Ratela Asllani, December 2014

2.3 North Atlantic Council Is the principal political decision-making body at NATO. Each member country has a seat there. It meets at least once a week or whenever the need arises, at different levels. It is chaired by the Secretary General, who helps members reach agreement on key issues. It can meet at the level of “permanent representatives” (or “ambassadors”), at the level of foreign and defense ministers, and at the level of heads of state and government. The NAC is chaired by the Secretary General. In the absence of the Secretary General, the Deputy Secretary General chairs the meetings. The longest serving ambassador on the Council assumes the title of dean of the Council. Primarily a ceremonial function, the dean may be called upon to play a more specific presiding role, for example in convening meetings and chairing discussions at the time of the selection of a new Secretary General. At ministerial meetings of foreign ministers, one country's foreign minister assumes the role of honorary president. The position rotates annually among members in the order of the English alphabet. The ambassadors sit round the table in order of nationality, following the English alphabetical order. The same procedure is followed throughout the NATO committee structure. Ratela Asllani, December 2014

2.4 North Atlantic Council Working Procedures Preparing the Council’s Work (subcommittees) Supporting the council (Secretary of Council, Secretariat & International Staff) Meets at least every week and often more frequently, at the level of permanent representatives; Meets twice a year at the level of ministers of foreign affairs, three times a year at the level of ministers of defense, & occasionally at the summit level with the participation of prime ministers & heads of state and government. Permanent representatives act on instruction from their capitals, informing and explaining the views and the policy decisions of their governments to their colleagues around the table. Conversely they report back to their national authorities on the views expressed and positions taken by other governments, informing them of new developments & keeping them abreast of movement toward consensus on important issues or areas where national positions diverge. Each country represented at the Council table or on any of its subordinate committees retains complete sovereignty and responsibility for its own decisions. The work of the Council is prepared by subordinate committees with responsibility for specific areas of policy. Much of this work involves the Deputies Committee, consisting of Deputy Permanent Representatives. The Council has an important public profile and issues declarations and communiqués explaining the Alliance's policies and decisions. These documents are normally published after ministerial or summit meetings. The Deputies Committee has particular responsibility for preparing such documents and meets in advance of ministerial meetings to draft the texts for Council approval. A similar role is played by the Nuclear Planning Staff Group on behalf of the Nuclear Planning Group. Other aspects of political work may be handled by the Political and Partnerships Committee. Depending on the topic under discussion, the respective senior committee with responsibility for the subject assumes the leading role in preparing Council meetings and following up Council decisions. When the Council meets at the level of defense ministers, or is dealing with defense matters and questions relating to defense strategy, senior committees such as the Defense Policy and Planning Committee may be involved as principal advisory bodies. If financial matters are on the Council's agenda, the Resource Policy and Planning Board will be responsible to the Council for preparing relevant aspects of its work. Direct support to the Council is provided by the Secretary of the Council, who ensures that Council mandates are executed and its decisions recorded and circulated. A small Council Secretariat ensures the bureaucratic and logistical aspects of the NAC's work, while the relevant divisions of the International Staff support the work of committees reporting to the NAC. Generally speaking, the entire International Staff at NATO HQ supports the work of the Council, either directly or indirectly, and helps to ensure that Council decisions are implemented Ratela Asllani, December 2014

2.5 Subordinate Committees It is a network of committees Deals with all subjects on its agenda, from political to more technical issues Bringing national representatives & experts from all NATO member countries together on a regular basis. Ratela Asllani, December 2014

2.6 Military Representatives When the implementation of political decisions has military implications, the key actors involved are: Military Committee, composed of the Chiefs of Defense of NATO member countries; the International Military Staff, the Military Committee’s executive body; Military command structure, composed of Allied Command Operations & Allied Command Transformation. NATO has very few permanent forces of its own. When an operation is agreed by the NAC, members contribute forces on a voluntary basis. These forces return to their countries once the mission is completed. Ratela Asllani, December 2014

Ratela Asllani, December 2014 Military Committee Ratela Asllani, December 2014

2.6 Military Representatives Military Committee: The Military Committee (MC) is the senior military authority in NATO. It is the primary source of military advice to the North Atlantic Council (NAC) & the Nuclear Planning Group, & assists in developing strategic policy and concepts. It also provides guidance to the two Strategic Commanders – Allied Command Operations & Allied Command Transformation. The Military Committee, chaired by the Chairman of the Military Committee, provides an essential link between the political decision-making process and the military structure of NATO. It meets at the level of Military Representatives shortly after meetings of the NAC to follow up on Council decisions, and at the level of Chiefs of Defense Staff three times a year. Ratela Asllani, December 2014

Allied Command Operations Ratela Asllani, December 2014

2.6 Military Representatives Allied Command Operations Located at SHAPE in Mons, Belgium. Is responsible for planning & execution of all NATO military operations. The command’s aim is to maintain the integrity of Alliance territory, safeguard freedom of the seas & economic lifelines & preserve or restore the security of its members. Is one of two strategic commands at the head of NATO’s military command structure. Consists of small number of permanently established headquarters operating at the strategic, operational & tactical levels. Is headed by the Supreme Allied Commander Europe, or SACEUR, who exercises his responsibilities from SHAPE. Ratela Asllani, December 2014

Allied Command Transformation Ratela Asllani, December 2014

2.6 Military Representatives Allied Command Transformation Leads the transformation of NATO’s military structure, forces, capabilities & doctrine. Is mainly responsible for education, training & exercises, conducting experiments to assess new concepts & promoting interoperability throughout NATO. Is one of two strategic commands at the head of NATO’s military command structure. Directs a small number of subordinate commands & has strong links with educational and training facilities, as well as with the Pentagon, other national entities & the NATO Force Structure in general. Headed by the Supreme Allied Commander Transformation, or SACT, who exercises his responsibilities from headquarters in Norfolk, Virginia, the United States. Ratela Asllani, December 2014

Ratela Asllani, December 2014 2.7 NATO Agencies & Orgs Are a vital mechanism for procuring and sustaining capabilities collectively. Specialize in technical fields that complement and form an integral part of NATO’s agenda: procurement, support & communications & information. Ratela Asllani, December 2014

3. Decisions & Consultation Ratela Asllani, December 2014

3. Decisions & Consultation All NATO decisions are made by consensus, after discussion & consultation among member countries. A decision reached by consensus is an agreement reached by common consent, a decision that is accepted by each member country. This means that when a "NATO decision" is announced, it is the expression of the collective will of all the sovereign states that are members of the Alliance. This principle is applied at every committee level, & demonstrates clearly that NATO decisions are collective decisions made by its member countries. Ratela Asllani, December 2014

3. Decisions & Consultation How this principle is applied? Consensus decision-making means that there is no voting at NATO. Consultations take place until a decision that is acceptable to all is reached. Sometimes member countries agree to disagree on an issue. In general, this negotiation process is rapid since members consult each other on a regular basis and therefore often know and understand each other's positions in advance. Facilitating the process of consultation is one of the NATO Secretary General's main tasks. The consensus principle applies throughout NATO. The origins of this principle Consensus has been accepted as the sole basis for decision-making in NATO, since the creation of the Alliance in 1949. Ratela Asllani, December 2014

3.1 The Consultation Process Ratela Asllani, December 2014

3.1 The Consultation Process Consultation is a key part of NATO’s decision-making process since all decisions are made by consensus, after discussion and consultation among members. In Article 4 of NATO’s founding treaty, members are encouraged to bring subjects to the table for discussion within the North Atlantic Council, the principal forum for political consultation. Since the Alliance’s creation in 1949, Article 4 has been invoked several times, for instance by Turkey in 2013 and Poland in 2014. Consultation regularly takes place within the existing network of committees and working groups, which derive their authority from the Council. Consultation gives NATO an active role in preventive diplomacy by providing the means to help avoid military conflict. Ratela Asllani, December 2014

3.1 The Consultation Process Consultations take place on all subjects of interest to the Alliance: This prerogative is outlined in Article 4 of NATO’s founding treaty:  “The Parties will consult together whenever, in the opinion of any of them, the territorial integrity, political independence or security of any of the Parties is threatened.” The consultation process is therefore at the heart of NATO. It reinforces the Alliance’s political dimension by giving members the opportunity to voice opinions and official positions, and it also gives NATO an active role in preventive diplomacy by providing the means to help avoid military conflict. Consultation is continuous and takes place both on a formal and informal basis. It  can happen quickly due to the fact that all member states have permanent delegations at NATO Headquarters in Brussels. Governments  can come together at short notice whenever necessary, often with prior knowledge of their respective national preoccupations, in order to agree on common policies or take action on the basis of consensus. NATO’s network of committees facilitates consultation by enabling government officials, experts and administrators to come together on a daily basis to discuss a broad range issues. Ratela Asllani, December 2014

Ratela Asllani, December 2014 3.2 Forms of Consultation The political dimension of NATO In April 1954, a resolution on political consultation was adopted: “... all member governments should bear constantly in mind the desirability of bringing to the attention of the Council information on international political developments whenever they are of concern to other members of the Council or to the Organization as a whole; and (...) the Council in permanent session should from time to time consider what specific subject might be suitable for political consultation at one of its subsequent meetings when its members should be in a position to express the views of their governments on the subject.” C-M(54)38. The resolution, which was put forward by Canada and immediately approved, provoked nonetheless a reaction from the American representative: “Mr. Dulles (United States) supported the Canadian resolution on the understanding that consultation would be limited within the bounds of common sense. Countries like his own with world-wide interests might find it difficult to consult other NATO governments in every case. For a sudden emergency, it was more important to take action than to discuss the emergency. In other words, consultation should be regarded as a means to an end, rather than an end in itself.” (C-R(54)18). “Animus in consulendo liber” Renderings in English have ranged from the cryptic “in discussion a free mind” to the more complex “Man’s mind ranges unrestrained in counsel”. Consultation takes many forms. At its most basic level it involves simply the exchange of information and opinions. At another level it covers the communication of actions or decisions, which governments have already taken or may be about to take. Finally, it can encompass discussion with the aim of reaching a consensus on policies to be adopted or actions to be taken. . While consensus decision-making can help a member country preserve national sovereignty in the area of defense and security, Article 4 can be an invitation for member countries to concede this right to the group or it can simply lead to a request for NATO support. Article 4 Under Article 4 of NATO’s founding treaty, member countries can bring an issue to the attention of the Council and discuss it with Allies. The article states: “The Parties will consult together whenever, in the opinion of any of them, the territorial integrity, political independence or security of any of the Parties is threatened.” Any member country can formally invoke Article 4 of the North Atlantic Treaty. As soon as it is invoked, the issue is discussed and can potentially lead to some form of joint decision or action on behalf of the Alliance. Whatever the scenario, fellow members sitting around the Council table are encouraged to react to a situation brought to their attention by a member country. The political dimension of NATO Encouraging members of an inter-governmental organisation who have not given up their right of free and independent judgment in international affairs to consult more systematically on an issue is a challenge – be it today or in the ‘50s. In the early ‘50s, the NAC recognised NATO’s consultative deficiency on international issues and recommended that measures be taken to improve the process. In April 1954, a resolution on political consultation was adopted: “... all member governments should bear constantly in mind the desirability of bringing to the attention of the Council information on international political developments whenever they are of concern to other members of the Council or to the Organization as a whole; and (...) the Council in permanent session should from time to time consider what specific subject might be suitable for political consultation at one of its subsequent meetings when its members should be in a position to express the views of their governments on the subject.” C-M(54)38. The resolution, which was put forward by Canada and immediately approved, provoked nonetheless a reaction from the American representative: “Mr. Dulles (United States) supported the Canadian resolution on the understanding that consultation would be limited within the bounds of common sense. Countries like his own with world-wide interests might find it difficult to consult other NATO governments in every case. For a sudden emergency, it was more important to take action than to discuss the emergency. In other words, consultation should be regarded as a means to an end, rather than an end in itself.” (C-R(54)18). The reservations made by the United States, which no doubt were shared by other member countries, could still be voiced today. Building on this resolution, on 8 March 1956, the Secretary General of NATO, Lord Ismay, made a statement which widened the debate by explaining the consequences of systemising political consultation within the Alliance: “A direct method of bringing home to public opinion the importance of the habit of political consultation within NATO may be summed up in the proposition “NATO is a political as well as a military alliance”. The habitual use of this phraseology would be preferable to the current tendency to refer to NATO as a (purely) military alliance. It is also more accurate. To refer to NATO as a political alliance in no sense denies, depreciates or deprecates the fact that the alliance is also military.” (C-M(56)25-1956). The same year, the “Three Wise Men” produced their report, which inter alia sought to improve consultation within the Alliance on issues of common concern (Report of the Committee of Three on Non-Military Cooperation in NATO”). However, ironically it was published as the Suez crisis emerged. Suez severely divided the leading founding members of the Organization (France, the United Kingdom and the United States). The Suez crisis acted as a catalyst for NATO, leading it to put into practice something it knew was of vital importance for the unity and solidarity of the Alliance – political consultation. “Animus in consulendo liber” For its anecdotal value, it is worth noting that when NATO moved to its headquarters at the Porte Dauphine in Paris, December 1959, the Secretary General, M. Paul-Henri Spaak, enlisted the help of the Dean of the Council in finding a suitable Latin maxim which would capture the spirit of consultation between Allies to which he attached so much importance. The Dean, Belgian Ambassador André de Staercke, recalled a visit he had made to the Tuscan town of San Gimignano. There, in the Palazzo del Podestà, engraved on the back of the seat reserved for the man who presided over the destinies of the city, he had seen the motto: Animus in consulendo liber. It seems that an entirely satisfactory translation of the phrase cannot be found, although a French version “l’esprit libre dans la consultation” comes close. Renderings in English have ranged from the cryptic “in discussion a free mind” to the more complex “Man’s mind ranges unrestrained in counsel”. The motto adorned the conference area at the Porte de Dauphine for several years and, in 1967, was moved to NATO’s new home in Brussels, where it has since graced the wall of the Council room. Ratela Asllani, December 2014

Ratela Asllani, December 2014 3.2 Forms of Consultation consultation & consensus were accepted as the basis for all NATO decisions when the Alliance was created in 1949 Three levels: 1. Exchange of Information & Opinions 2. Communication of Actions/Decisions, which governments have already taken/may be about to take 3. Discussion with the aim of reaching a consensus on policies to be accepted/actions to be taken As explained above, consultation and consensus were accepted as the basis for all NATO decisions when the Alliance was created in 1949. However, it was only gradually that NATO set up a consultation system. In broad terms, this was done in three stages: 1949-1952: at the signing of the Treaty, NATO introduced the consultation process as a key principle in its working mechanisms. This was reinforced at the Lisbon Conference (1952) where the contours of today’s NATO were put into place: the NAC was made permanent and the position of Secretary General was created, together with an international staff that would support Council decisions on a permanent basis; 1952-1956: between 1952 and the publishing of the Committee of Three’s report on non-military cooperation, attempts had been made to encourage political consultation beyond the geographical limitations defined in the founding treaty, ie, beyond the defined NATO area. From 1956: the principles of the Report of the Committee of Three were further developed and implemented. The Committee recommended measures in the area of political cooperation with regard to foreign policies, the peaceful settlement of inter-member disputes, economic cooperation, scientific and technical cooperation, cultural cooperation and cooperation in the information field. The Committee of Three left a lasting legacy by encouraging NATO members to reconcile differences within the Organization through productive consultation on matters of common concern, including issues outside the defined NATO area. The Suez crisis provided a firsthand example of why close political consultation and non-military cooperation are necessary. Ratela Asllani, December 2014

3.3 Political Consultation The principal forum for political consultation is the North Atlantic Council, the NAC. The NAC is NATO’s principal political decision-making committee. The Secretary General, by virtue of his chairmanship, plays an essential part in this process. Consultation also takes place on a regular basis in other fora, including NATO committees and working groups. All of these bodies derive their authority from the Council. Ratela Asllani, December 2014

3.3 Political Consultation NATO Delegations Contributing to the consultation process Consultation is ultimately designed to enable member countries to arrive at mutually acceptable agreements on collective decisions or on action by the Alliance as a whole. Ratela Asllani, December 2014

3.4 Political Decision-Making The North Atlantic Council (NAC) is the principal political decision-making body within NATO. NAC Effective political authority & powers of decision. Policies decided in the NAC are the expression of the collective will of all member countries of the Alliance since decisions are made on the basis of unanimity and common accord. The NAC is chaired by the Secretary General and its decisions have the same status and validity at whichever level it meets. It is the only body that was established by the North Atlantic Treaty (Article 9) in 1949 and that has the authority to set up subsidiary bodies, as deemed necessary. The Nuclear Planning Group has comparable authority to the NAC for matters within its specific area of competence, i.e., nuclear policies, planning and consultation procedures Ratela Asllani, December 2014

Ratela Asllani, December 2014 Conclusion NATO composed of political & military component Decision-making in political level Advising on military level Military component when diplomacy fails Consensus as sole tool of decision-making Cooperation among civilian & military dimension in all matters affecting member states Building integrated system Ratela Asllani, December 2014

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Ratela Asllani, December 2014 Thank you!!! Questions!!!! Ratela Asllani, December 2014