Operation Active Endeavour
Under Operation Active Endeavour, NATO ships are patrolling the Mediterranean and monitoring shipping to help deter, defend, disrupt and protect against terrorist activity. The operation evolved out of NATO’s immediate response to the terrorist attacks against the United States of 11 September 2001 and, in view of its success, is being continued.
As the Alliance has refined its counter-terrorism role over the years, the operation’s remit has been extended and its mandate regularly reviewed. In addition to tracking and controlling suspect vessels to keep the seas safe, it now aims to build a picture of maritime activity in the Mediterranean. To do this, the ships conduct routine information approaches to various vessels in order to reassure and inform mariners on the efforts to keep the maritime community safe.
The experience that NATO has accrued in Active Endeavour has given the Alliance unparalleled expertise in the deterrence of maritime terrorist activity in the Mediterranean Sea. This expertise is relevant to wider international efforts to combat terrorism and, in particular, the proliferation and smuggling of weapons of mass destruction, as well as enhanced cooperation with non-NATO countries and civilian agencies.
Operation Active Endeavour is NATO’s only Article 5 operation on anti-terrorism. It was initiated in support of the United States immediately after 9/11. It aims to demonstrate NATO's solidarity and resolve in the fight against terrorism and to help deter and disrupt terrorist activity in the Mediterranean.
NATO forces have hailed over 122,000 merchant vessels and boarded some 166 suspect ships. By conducting these maritime operations against terrorist activity, NATO’s presence in these waters has benefited all shipping travelling through the Straits of Gibraltar by improving perceptions of security. NATO is helping to keep seas safe, protect shipping and control suspect vessels. Moreover, this operation is also enabling NATO to strengthen its relations with partner countries, especially those participating in the Alliance’s Mediterranean Dialogue.
Keeping seas safe and protecting shipping
Keeping the Mediterranean’s busy trade routes open and safe is critical to NATO’s security. In terms of energy alone, some 65 per cent of the oil and natural gas consumed in Western Europe pass through the Mediterranean each year, with major pipelines connecting Libya to Italy and Morocco to Spain. For this reason, NATO ships are systematically carrying out preparatory route surveys in “choke” points as well as in important passages and harbours throughout the Mediterranean.
Tracking and controlling suspect vessels
Since April 2003, NATO has been systematically boarding suspect ships. These boardings take place with the compliance of the ships’ masters and flag states in accordance with international law.
What happens in practice is that merchant ships passing through the eastern Mediterranean are hailed by patrolling NATO naval units and asked to identify themselves and their activity. This information is then reported to NATO’s Maritime Commander in Northwood, the United Kingdom. If anything appears unusual or suspicious, teams of between 15 and 20 of the ships’ crew may board vessels to inspect documentation and cargo. Compliant boarding can only be conducted with the consent of the flag state and/or the ship’s master. NATO personnel may otherwise convey this information to the appropriate law enforcement agency at the vessel’s next port of call. The suspect vessel is then shadowed until action is taken by a responsible agency/authority, or until it enters a country’s territorial waters.
While the mandate of Active Endeavour is limited to deterring, defending, disrupting and protecting against terrorist-related activity, the operation has had a visible effect on security and stability in the Mediterranean that is beneficial to trade and economic activity.
NATO ships and helicopters have also intervened on several occasions to rescue civilians on stricken oil rigs and sinking ships, saving the lives of several hundred people over time. Operation Active Endeavour provided the framework for the maritime component of NATO’s assistance to the Greek government to ensure the safe conduct of the 2004 Olympic and Paralympic Games in August and September 2004. Task Force Endeavour conducted surveillance, presence and compliant boarding operations in international waters around the Greek peninsula with Standing Naval Forces surface ships, supported by maritime patrol aircraft and submarines and in coordination with the Hellenic Navy and Coast Guard.
Closer cooperation with partners
The increased NATO presence in the Mediterranean has also enhanced the Alliance’s security cooperation programme with seven countries in the wider Mediterranean region – Algeria, Egypt, Israel, Jordan, Mauritania, Morocco and Tunisia. This programme - the Mediterranean Dialogue - was set up in 1994 to contribute to regional security and stability and to achieve better mutual understanding between NATO and its Mediterranean Partners.
Mediterranean Dialogue countries are equally concerned by the threat of terrorism and have already been cooperating with NATO in Active Endeavour by providing intelligence about suspicious shipping operating in their waters.
Enhanced coordination and cooperation mechanisms are currently being developed.
The operation is under the overall command of, and is conducted from, Maritime Command Headquarters, Northwood (United Kingdom) through a task force deployed in the Mediterranean.
Task Force Endeavour consists of a balanced collection of surface units, submarines and maritime patrol aircraft. The operation also regularly makes use of NATO’s two high-readiness frigate forces, which are permanently ready to act and capable of conducting a wide range of maritime operations.
The current operational pattern uses surface forces as reaction units to conduct specific tasks such as locating, tracking, reporting and boarding of suspected vessels in the light of intelligence.
The NATO Standing Naval Forces rotate in providing periodic support to Operation Active Endeavour either through “surges” (when an entire force participates) or through individual units being put on call when the operation has no regularly assigned forces.
An Article 5 deployment
The deployment was one of eight measures taken by NATO to support the United States in the wake of the terrorist attacks of 11 September 2001, following the invocation of Article 5, NATO’s collective defence clause, for the first time in the Alliance’s history.
The deployment started on 6 October and was formally named Operation Active Endeavour on 26 October 2001. Together with the dispatch of Airborne Warning and Control System (AWACS) aircraft to the United States, it was the first time that NATO assets had been deployed in support of an Article 5 operation.
Since October 2001, NATO ships have been patrolling the Mediterranean and monitoring shipping, boarding any suspect ships. Compliant boarding operations are essential to the successful continuation of the operation. They are limited to trying to establish whether a vessel is engaged in terrorist activity.
Moreover, in March 2003, Active Endeavour was expanded to provide escorts through the Straits of Gibraltar to non-military ships from Alliance member states requesting them. This extension of the mission was designed to help prevent terrorist attacks such as those off Yemen on the USS Cole in October 2000 and on the French oil tanker Limburg two years later. The area was considered particularly vulnerable because the Straits are extremely narrow and some 3,000 commercial shipments pass through daily. In total, 488 ships took advantage of NATO escorts until Task Force STROG (Straits of Gibraltar) was suspended in May 2004. Forces remain ready to move at 30-days notice.
Covering the entire Mediterranean
One year later, in March 2004, as a result of the success of Active Endeavour in the Eastern Mediterranean, NATO extended its remit to the whole of the Mediterranean.
At the June 2004 Istanbul Summit, Allied leaders decided to enhance Operation Active Endeavour (OAE). They also welcomed offers by Russia and Ukraine to support the operation.
An evolving operation
In the revised Concept of Operations approved by the North Atlantic Council on 23 April 2009, the Military Committee highlighted two considerations: the need to further enhance information-sharing between NATO and other actors in the region; the fact that in some cases, the operation is hampered by the lack of consent to conduct compliant boarding of suspect vessels.
In addition, the Operational Plan approved in January 2010, is shifting Operation Active Endeavour from a platform-based to a network-based operation, using a combination of on-call units and surge operations instead of deployed forces; it is also seeking to enhance cooperation with non-NATO countries and international organisations in order to improve Maritime Situational Awareness. All options for future changes in the Operation’s mandate are considered on the basis of the Alliance Maritime Strategy, adopted in January 2011. Operation Active Endeavour is fulfilling the four roles outlined in this strategy: deterrence and collective defence; crisis management; cooperative security; and maritime security.
In February 2013, as a result of the reform of the military command structure initiated in 2011, the operation changed command. Initially, OAE was under the overall command of Joint Forces Command (JFC), Naples, and was conducted from the Allied Maritime Component Command Naples, Italy (CC-Mar Naples). From 22 February 2013, it came under the command of, and is conducted by, Maritime Command Headquarters, Northwood (United Kingdom).
Being an Article 5 operation, Operation Active Endeavour initially involved member countries only.
Some NATO members, mainly Greece, Italy, Spain and Turkey contribute directly to the operation with naval assets. Escort operations in the Straits of Gibraltar used to involve the use of fast patrol boats from northern European Allies Denmark, Germany and Norway. Spain also provides additional assets in the Straits. Operation Active Endeavour relies heavily on the logistic support of Mediterranean NATO Allies.
From 2004, partner and non-NATO countries started offering their support.
All offers are considered on a case-by-case basis. To date, Exchanges of Letters have been signed between NATO and Israel, Morocco, Russia and Ukraine. In addition, Finland and Sweden have informally expressed their interest in contributing to the operation. Georgia has sent a liaison officer to Naples following the signing of a tactical Memorandum of Understanding with NATO in 2010 on the exchange of information. Russia deployed vessels twice, in 2006 and 2007, and Ukraine a total of six times since 2007.