The
Lisbon Reorganization
1. The North Atlantic Council, at their Ninth Session held at Lisbon
in February, 1952, decided upon certain fundamental changes in the North
Atlantic Treaty Organization, namely:
(a) that the Council, while continuing to hold periodical Ministerial
Meetings, should, in future, function in permanent session through the
appointment of Permanent Representatives: and that it should assume
responsibility for the tasks hitherto performed by the Council Deputies,
the Defence Production Board and the Financial and Economic Board, as
well as those initiated by the Temporary Council Committee;
(b) that a Secretary General should be appointed, and that a single
integrated and strengthened Staff/Secretariat should be established
to assume responsibility for the functions hitherto performed by the
international staffs and the various civilian agencies of the Treaty,
and to provide the Council with the necessary assistance in its broadening
field of activities ;
(c) that all North Atlantic Treaty Organization civilian activities
should be concentrated at a single Headquarters in or near Paris.
2. Pursuant to the above, the Council Deputies, the Financial and Economic
Board and the Defence Production Board ceased to exist on the 4th April,
1952-the third anniversary of the signing of the North Atlantic Treaty.
3. I assumed the office of Secretary General in London on that date; and
moved to Paris on the 16th April. I was joined there by the end of the
month by the Permanent Representatives of all member countries.
The
Council
4. The Council held its first meeting on the 28th April. Between then
and the 31st March, 1957, they have met on no less than 505 occasions
(1). During the same period there have been just over 7,000 meetings of
Council Committees and Working Groups. This means that representatives
at various levels of all member countries have met round the same table
on no less than 7,500 occasions in five years. It can therefore be claimed
that the Lisbon injunction that the Council should "function in permanent
session" has been fulfilled in the letter as well as the spirit.
(1) Of these, 47 were Ministerial Sessions.
Ministerial
Sessions
5. Since Lisbon, all Ministerial Sessions have been held in Paris: but
in accordance with the decision taken last December that meetings of Foreign
Ministers should occasionally be held in locations other than NATO Headquarters,
the next Ministerial Meeting will commence on the 2nd May at Bonn.
6. As agreed at the first meeting of the North Atlantic Council in Washington
in 1949, the Chairmanship of the Council has rotated annually. Since the
move to Paris, it has been held by the Foreign Ministers of Canada, Denmark,
France, Greece, Iceland and Italy.
7. In the past the Chairman has frequently requested the Secretary General,
in his capacity as Vice-Chairman, to take the Chair at Ministerial Meetings.
It was decided last December that, in future, he should always do so.
At the same time, a Minister will be appointed each year as President
of the Council, in accordance with the practice of alphabetical rotation.
The President will continue to have specially close contact with the Secretary
General during and between Ministerial Meetings, and will, as at present,
act as the spokesman of the Council on all formal occasions. He will also
preside at the formal opening and closing of Ministerial Sessions of the
Council.
The
Council of Permanent Representatives
8. As agreed at Lisbon, and reiterated in the Report of the Committee
of Three, the Council of Permanent Representatives has powers of effective
decision. In other words, the authority of the Council, as such, is the
same whether governments are represented by Ministers or by their Permanent
Representatives. Thus there is no firm or formal line between Ministerial
and other meetings of the Council.
9. Nevertheless there is still a tendency in some quarters to regard
the Council of Permanent Representatives as a sort of Second Eleven, which
is empowered to decide matters of relatively small importance, but, in
the case of more important problems, to do no more than make preliminary
studies with a view to their1 consideration and decision at Ministerial
Sessions. In the interests of efficiency, it is important that the plenary
authority of the Permanent Council should be generally recognised.
10. The meetings of the Council of Permanent Representatives have been
of three different types. First, the normal sessions to which Permanent
Representatives can bring four advisers or more, if business so requires.
Secondly, there have been restricted sessions for the consideration of
particularly confidential business. These are attended by not more than
two advisers from each delegation, and the circulation of the records
is restricted. Thirdly, there have been 182 private sessions. These have
been attended by Permanent Representatives alone, or occasionally by Permanent
Representatives and one adviser. There is no formal Agenda: no official
records are kept: and no commitments undertaken.
Visits
of North Atlantic Council
11. The visits which the Council have paid in their corporate capacity
to various military headquarters and to international manoeuvres are summarised
in the paragraphs that follow.
12. In September 1952, the Council watched international manoeuvres in
North and South Germany. A few days later, they flew to Oslo where they
attended the critique of an extensive naval exercise. In November 1952,
they went to Naples and Izmir to witness large-scale naval exercises in
the Mediterranean.
13. In September 1953, the Council went to Germany to watch Exercise
Grand Repulse. In October, they visited the Headquarters of C-in-C Channel
at Portsmouth and of C-in-C EASTLANT and C-in-C AIREASTLANT at Northwood
in the United Kingdom in connection with Exercise Mariner. This was the
largest NATO naval exercise that had ever been carried out, and was mainly
devoted to the problems of shipping in time of war.
14. In July 1954, the Council paid a visit to Malta in order to gain
first-hand knowledge of the latest NATO Command Headquarters HAFMED, and
to attend the critique of naval exercise Medflex-Baker. In September,
they again went to Germany and witnessed large-scale manoeuvres (Battle-Royal)
in Westphalia. Many Ministers of Defence were present on this occasion.
15. In May 1955, the Council flew to Iceland and inspected the air-base
at Keflavik. Thence they flew to the United States of America and were
briefed at the Headquarters of SACLANT in Norfolk, Virginia. From there
they went to Washington, where they were received by President Eisenhower,
and had several discussions with the Standing Group. From Washington they
flew to Canada and visited Air Defence Command Headquarters, a radar station,
and the Canadair factory.
16. Apart from the above visits out of France, they have paid visits
to aircraft factories at Nantes and St-Nazaire, and to the nuclear studies
centre of Saclay, -they have had frequent briefings and discussions at
SHAPE; and they keep in constant touch with the NATO Defence College.
17. There can be no doubt that these visits have proved well worthwhile.
They have given members of the Council a first-hand picture of some of
the military problems and have enabled them to establish personal relations
with the senior military commanders. Moreover, the very fact of the Council
travelling about as a team has not been without significance or value.
Council
Committees
18. On arrival in Paris the Council proceeded to set up such Committees
as they thought necessary to assist them with their work. The Chart at
Annex A shows the Boards, Committees and Working Groups (2) which were
in being at the end of 1952. Their titles indicate the general character
and scope of the problems with which they deal. The Chairman of each appointed
by the Council, and all member countries are represented in the membership.
(2) Standing Commitees are on a permanent basis, where
as
Working Groups are ad hoc. They are dissolved when they
have completed their tasks for which they were established.
19. During the past four years the number of Committees and Working Groups
has had to be considerably increased in order to cope with the ever-broadening
scope of the Council's activities. The Chart at Annex B shows the Committees
and Working Groups now in being.
20. As stated in paragraph 4 above there have been over 7,000 meetings
of Council Committees and Working Groups since the move to Paris.
The
International Staff
21. On arrival in Paris, my immediate task was to organize the International
Staff/Secretariat on the general lines which had been agreed in principle
between myself and the Council Deputies before they handed over to me.
The Organization originally set up is shown at Annex C. Since then there
have been a few re-adjustments in the light of experience and of a report
by a team of Management Experts. The existing Organization is shown at
Annex D.
22. In my first Progress Report dated 8th December, 1952, I drew attention
to the fact that the emoluments and conditions of service of the staff
were insufficiently attractive. Changes were made in the salaries of certain
members of the staff as the result of a report of a team of emoluments
experts. A provident fund for the whole staff was also established at
this time to replace the former system of separation allowances. Even
so, the emoluments were still de-monstrably inadequate, and an overall
increase has been given in the form of a temporary allowance: this is
to continue until recommendations are received from the Group of Experts
which has been set up to study the emoluments of the staffs of NATO, OEEC,
the Council of Europe and WEU.
23. The first Staff Manual published in April 1952 was replaced by an
amended version in April 1955. A further revision is now in hand.
24. When NATO first came to Paris, rough and ready rules on budget expenditure
were embodied in the Staff Manual. A complete set of financial regulations
together with rules and procedures for implementing them was included
in 1955.
25. The present size of the staff,, together with the break-down by nationalities
in the officer grades in shown at Annex E.
26. I now turn to the question of the quality of the International Staff.
In this connection it will be recalled that the Committee of Three expressly
stated that "the effective functioning of NATO depended in large
measure upon the efficiency, devotion and morale of its Secretariat":
and they recommended that governments should be prepared to give the International
Staff "all necessary support both in finance and personnel."
27. It is perhaps not sufficiently realised that the 1 NATO International
Staff suffers from certain inherent handicaps. In the first place,, its
members, coming as they do from 15 different countries, have been trained
on different doctrines and different systems. Secondly, in view of the
fact that there are only two official languages, nine out of the fifteen
partners have to operate in a language other then their mother tongue.
It is one thing to be able to tiilk a foreign language fairly fluently:
it is quite another to be able to draft reports in that language clearly
and accurately. Thirdly, it is obviously desirable that all member countries
should be proportionately represented on the staff. Consequently there
can be no question of international competitive bidding for appointments.
These have to be allotted not to the best man available in the Alliance,
irrespective of nationality, but to the man selected by the government
of the particular country which, in the interest of proportionate representation,
is asked to fill the appointment in question. Fourthly, the larger proportion
of the more senior appointments of the staff are held by officials who
are seconded by their respective governments for a tour of service with
NATO, and who are replaced on the expiry of that term by other officials
similarly seconded. Thus there is little or no prospect of substantial
promotion within the International Staff.
28. Despite these inherent handicaps, the International Staff have, in
my opinion, acquired the team spirit in a remarkable degree, and have
dedicated themselves whole-heartedly to the cause of international solidarity.
The Council, in general, and I myself in particular, owe them a deep debt
of gratitude for their loyalty and cheerful devotion to duty in circumstances
which have not always been easy.
Secretary
General's tours
29. I paid official visits to all member countries' on the following
dates:
1952
Denmark
Norway
Portugal
Italy
Netherlands
Canada
USA
Greece
Turkey
Belgium
Luxembourg
United Kingdom Iceland
Germany
- July 17th-20th
- July 20th-23rd
- October 9th-12th
- October 16th-19th
- October 23rd-26th
1953
- March 6th-10th
- March 10th-25th
- May llth-14th
- May 15th-18th
- November 12th-15th
- November 20th-22nd
1954
- July 5th - 7th
- July 12th-14th
1955
- July 4th-6th
30. I enjoyed the great privilege on all these occasions of paying my
respects to the Heads of States; and I was granted opportunities for consultation
with those members of government, and senior officials who were primarily
concerned with NATO affairs. These contacts proved of immense assistance
to me in my task of co-ordinating the affairs of the Alliance, and I shall
ever be grateful to my hosts for all the trouble they took to make my
visits not only instructive but most enjoyable.
31. In addition I have paid special visits to Italy, Portugal, Norway,
Belgium and Denmark at the request of the NATO Voluntary Organizations
set up in these countries. I also attended as an observer at the meeting
of the President of the United States and the Prime Ministers of France
and the United Kingdom which took place at Bermuda in December, 1953.
32. I am grievously disappointed that circumstances beyond my control
have made it impossible for me to pay any farewell visits to NATO countries.
New
Headquarters for NATO
33. There has been a regrettable delay in the provision of a permanent
Headquarters for NATO. As early as November, 1952, the French Government
offered a site at Le Chesnay (Seine-et-Oise) which was provisionally accepted
by the Council. After further consideration, however, it became apparent
that practically none of the delegations were prepared to have offices
so far from their Embassies, on which they are dependent for communication
with their Governments.
34. The French Government had considerable difficulties in finding a
more central site, and it was not until April 1954 that they were in a
position to offer the Council a plot of ground near the Porte Dauphine
in Paris. This was gratefully accepted.
35. The next step was the appointment of an architect. Monsieur Jacques
Carlu, who has many important buildings to his credit, was chosen. His
preliminary plans were approved by the Council in February, 1955, Subsequently
a number of changes in these plans were found necessary. The lease was
formally signed on 20th December, 1955.
36. The first batch of tenders was sent out as soon as possible, but
the bids received in reply thereto were much higher than the architect's
original estimates. It therefore became clear that, owing to the considerable
rise in prices in France, and possibly a too optimistic first estimate,
the total expenditure originally approved by the Council would be largely
exceeded. In these circumstances the Council felt that it was necessary
for them to have further detailed and more comprehensive studies of the
total cost, and they appointed a firm of Danish consulting engineers to
prepare a new estimate. Their report is expected shortly.
37. Another important cause of delay has been shortage of steel. However,
thanks to the co-operation of the Governments of France and Luxembourg,
it has been possible to speed up matters to a certain extent. The erection
of the steel structure is now expected to start next,September.
38. It is difficult to give a firm date as to when the building will be
ready, but it is estimated that, if all goes reasonably well, the International
Staff and those delegations who are to be accommodated in the new building
will be able to occupy it in April, 1959.
Military
Organization
39. Since the move to Paris, the higher military structure of NATO, namely
the Military Committee, the Standing Group and the Military Representatives
Committee remained unchanged. There is, however, general agreement that
a measure of re-organization is necessary in order to ensure inter alia
that all NATO partners have their fair share of responsibility for the
co-ordination and direction of military affairs. This problem has been
considered both by the Council and the Military Committee, and is still
being studied.
40. There have been a number of modifications in the Command organization
during the period covered by this Report. In March, 1953, a new Command
was established at Malta with the title of "Allied Forces Mediterranean".
In July of the same year a second new Command was established namely:
"Allied Forces Central Europe" with Headquarters at Fontainebleau.
Prior to this, the forces in Central Europe were under the direct Command
of SACEUR. In addition the accession of Greece and Turkey to NATO in 1952
necessitated the establishment of "Land Forces South Eastern Europe
Command", with Headquarters at Izmir, under Commander-in-Chief South.
41. The relations between the civil and military authorities at all levels
have become increasingly harmonious each year. A particularly close relationship
has grown up between the Council and the Supreme Allied Commander Europe.
From time to time he attends meetings of the Council in Paris, and the
Council themselves have frequently visited SHAPE. This year for the first
time the Council have been invited to attend CPX SEVEN, the highly secret
command exercise which is held each year under the auspices of SHAPE.
42. The link between the Council in Paris and the Standing Group continues
to be provided by the Standing Group Representative (3). This officer
attends all the meetings of the Council, including private meetings, and
is thus in a position to keep military authorities in Washington in the
closest touch with the day-to-day thinking of the Council on all topics
which have military implications. There would be obvious advantages in
having the highest civil authorities and the highest military authorities
of NATO in the same locality: but there are stronger arguments which have
led to a continuation of the present arrangements.
(3) Until December, 195G, this Officer's title was
Standing-Group Liaison Officer.
The
Annual Review
43. Since 1952 there has been an Annual Review each year. No two Reviews
have turned out exactly alike, and none has followed in all respects the
procedures of the original Temporary Council Committee exercise. Nevertheless
the basic character of the Review has changed little: this is in itself
a tribute both to its value as an institution, and to its flexibility
as an instrument.
44. The Annual Review-"the main instrument for co-ordinating the
defence effort of the Alliance"-traditionally provides a basis for
the military planning of the Alliance by taking stock of NATO forces in
being, and by establishing force goals for three years ahead.
But it is well to recall, particularly at the present time, that this
task is, and must continue to be, accomplished under the guiding light
of "a careful appraisal of the economic risks involved in undertaking
increased expenditure on defence against the military risks of not doing
so". This is the key to the intricate procedures that have evolved:
the detailed questionnaires sent to countries in the Spring; the thorough
going military and economic analysis of replies during the Summer; the
multilateral examination of each country's defence plans by the Annual
Review Committee; the working up of recommendations both by the NATO military
authorities and by the International Staff; the general assessment by
the NATO military authorities of the defensive posture of the Alliance
as a whole; and finally the decisions taken by the Council in Ministerial
Session at the end of every year.
45. Each of the Annual Reviews which have taken place since the move
to Paris has had its special problem. The 1952 Review was directed largely
towards establishing in detail what needed to be done to meet the military
programmes which had been accepted in Lisbon earlier in the year. In the
1953 Review the problem of the long-term maintenance of forces began to
attract growing attention. In 1954 the Review had to take particular account
of changes in planning due to the prospects of a German contribution and
the use of nuclear weapons. In 1955 and 1956 long-term economic considerations,
and the need for a strategic reappraisal, were the principal preoccupations.
46. The very diversity of the problems dealt With through the Annual
Review is a measure of its achievement. But there are three general aspects
of the work on the Review which merit special emphasis. First there is
the habit, now firmly ingrained, of work done in common by all member
governments, without reserve and in great detail, on matters which were
formerly among the most jealously guarded of national secrets, even between
Allies.
47. Secondly, there has been a steady improvement in working relationships,
formal and informal, between the NATO military authorities and the civilian
International Staff. Mutual confidence and respect between civil and military
staffs, though a basic condition of sound defence planning, is not easily
or rapidly brought abaut in a new setting, with new men and new problems,
even on the national plane. Nevertheless, thanks to the readiness of national
delegations to accord increasing responsibility to the International Staff,
collaboration between the NATO military authorities and the Staff has
developed in the most encouraging fashion. In 1954 members of the Staff
had their first discussions with the standing Group planners in Washington.
In 1955 they were invited for the first time to acompany Commanders' teams
on visits to the NATO capitals. In 1956 they worked very closely with
the planners on the preparation of the Review on the broader implications
of the military recommendations to member countries, and on the general
report to the Council at the end of the year. In the 1957 Review there
will be opportunities for forging even closer links. There can be few
more promising ways of ensuring that the overall military planning of
the Alliance and the contributions to the common defence from, member
countries do not get out of step for purely technical reasons.
48. Lastly, the Annual Review, by setting out in a uniform and impartial
way the state of each country's forces, the problems relative to their
upkeep, and the resources being devoted to defence, has always provided,
and will, it is hoped, continue to provide, a realistic basis for the
allocation of mutual aid. Experience has amply borne out the conclusions
reached in the early days by the Financial and Economic Board, under the
Council Deputies, that no simple and generally acceptable formula can
be devised to measure each country's capacity to undertake defence. The
Annual Review, without seeking to arrive at mathematical judgments in
this respect, nevertheless gives a very fair picture j of where the weaknesses
lie, of where help between \ Allies is most needed, and of where it can
most effect- ; ively be applied. In international defence, as in international
trade, the only large economies are to be found in specialisation; i.e.
in each country carrying out those tasks for which it is best fitted.
Mutual aid, closely integrated with what each country plans to do on its
own account, is the corollary to this; and it is to be hoped that, through
the Annual Review, this aspect of the defence planning of the Alliance
will be further strengthened and developed.
Production
and standardisation
49. The following paragraphs are intended to give an indication of the
sort of work that has been and is being done under the above headings.
50. As far back as 1952, a review was carried out to enable a comparison
to be made between the production capabilities of the European NATO countries
on the one hand, and their requirements for equipment on the other. This
review revealed the need for intensifying production in several categories
of equipment, and for creating, in certain cases, additional production
facilities. Accordingly, a special working group set up by the Council
co-operated with the Production and Logistics Division in preparing correlated
production programmes for certain types of fighter aircraft, radio sets,
small arms, artillery, escort vessels, minesweepers and many classes of
ammunition. These programmes were to be financed partly by the countries
concerned, and partly by the United States under the Mutual Assistance
Programme.
51. Owing to the inability of certain European countries to allocate
to these programmes all the funds originally contemplated, it was impossible
to carry them out in full. Nevertheless, they played a significant part
in the provision of equipment for the forces, and were largely instrumental
in increasing production capacity in certain directions. The most noteworthy
results were those obtained in the fields of electronics, aircraft and
ammunition.
52. European versions of complex electronic devices, such as radars,
were developed and put into production. The manufacture of United States
type equipment was also started: this enabled spare parts for maintenance
which would otherwise have had to be imported from the United States to
be made in Europe.
53. The production of fighter aircraft was undertaken on a broader basis
than would have been possible under purely national arrangement: e.g.
the manufacture of British Hunter aircraft in Belgium and the Netherlands
was organised in such a manner as to enable the best possible use to be
made of the production facilities of both countries.
54. The combined capabilities of the European NATO countries for the
production of munitions were increased five-fold, thanks in the first
place to the sharing of the capital outlay for new plants between the
European countries concerned and the United States, and secondly to very
large offshore orders.
55. For some time now, the rapid advances made in manufacturing techniques
and the introduction of new weapons have shifted the main effort from
increasing the production capacity for conventional items or expanding
production facilities for these items, to the development and supply of
new equipment to meet the operational requirements of the Supreme Commanders.
56. The problem is many-sided and difficult, on account of the complex
character of the equipment in question and the long lead-time involved,
to say nothing of their much increased cost.
57. In the field of standardisation, the work of numerous groups of technical
experts has resulted in the preparation of about forty standardisation
agreements in respect of various components of motor vehicles, electronic
equipment, anti-aircraft artillery and ammunition.
Infrastructure
58. In most of NATO's activities it is not easy to describe the progress
achieved in precise terms. In the field of Infrastructure, however, progress
since 1952 can be illustrated by figures which speak for themselves. They
are, on the whole, not unimpressive.
59. In April 1952 there were less than 20 airfields available to NATO
forces. Today there are 150 usable by all types of aircraft.
60. In the communications field, 5,500 miles of land-lines, 1,250 miles
of submarine cables, dans 1,940 miles of radio links have been added to
the existing civilian networks.
61. In April 1952 there were no POL pipelines or storage facilities.
There are now 2,840 miles of pipeline, and storage facilities for 30 million
imperial gallons.
62. When NATO moved to Paris, infrastructure programmes amounting to
£231 million had been approved and cost-sharing percentages agreed.
During the period under review, programmes amounting to no less than £716
million have been approved. The problem of cost-sharing these programmes
has been the subject of prolonged discussion on three separate occasions.
On each occasion most countries honestly felt that they were being asked
to contribute too large a proportion :but on each occasion unanimity was
eventually reached. This speaks volumes for the spirit which prompts member
governments to subordinate their national viewpoints to the needs of the
solidarity of the alliance.
63. It should be added that contracts for common infrastructure works
are open to competitive bidding from reputable firms in all the member
countries. This system was introduced in 1953. It ensures that all members
who contribute towards the cost of a project have a chance to benefit
from the economic advantages which result from its construction.
64. It has sometimes been said that the construction of common infrastructure
projects are too slow a business. As to this, it must be borne in mind
first that a very large number of authorities are involved in almost every
transaction-the host country, the user country, the North Atlantic Council
(working through the Infrastructure Committee, the Payments and Progress
Committee and the International Staff), the Standing Group, the Supreme
Commander and the Subordinate Commanders: secondly that the installations
are generally highly technical and of considerable variety, and that they
must in all respects be up to the standards required by the Military:
thirdly that installations have to be set up in thirteen different countries:
and finally, that, if NATO is to get full value for money, the most thorough
check and crosscheck and the most drastic screening and pruning are essential
at all stages. Every effort has been made to simplify and speed up these
processes, but even so the Infrastructure Committee and the Payments and
Progress Infrastructure Committee are in almost continuous session.
Civil
Emergency Planning
65. The term civil emergency planning is used to denote the plans and
preparations that must be made by governments in time of peace in order
to ensure that the Home fronts will stand the strain of war.
66. There are some who say that the successful outcome of a nuclear war
will depend upon the efficiency of the arrangements which have been made
in time of peace to secure the home fronts more than on strictly military
preparedness. There are others who argue that no civil defence can be
effective against nuclear attack, and therefore that all civil emergency
planning is a waste of time and money. The truth lies somewhere, between
these two extremes. But it cannot be denied that it is the bounden duty
of every Government to do its utmost to make plans which would ensure
that, in the event of the unspeakable catastrophe of a thermo-nuclear
war, the civil population and civilian activities would be efficiently
controlled and directed.
67. When NATO moved to Paris in 1952, only two aspects of civil emergency
planning were already being studied. There was a planning Board for Ocean
Shipping, which was charged with the responsibility of preparing plans
for the mobilisation and control of merchant shipping in time of war:
and there was a Petroleum Planning Committee which was charged with the
responsibility of assessing the wartime military and civil petroleum requirements
and of preparing plans to ensure that available supplies would be distributed
in time of war to the best advantage of the Alliance as a whole.
68. In the course of my first interview after my arrival in Paris with
General Eisenhower (then SACEUR), he expressed grave anxiety about the
lack of NATO preparedness for war in the civilian field, particularly
in the matter of civil defence and of refugees and evacuees. I reported
this to the Council who addressed themselves to these problems at the
first opportunity.
69. Before the end of 1952, nine new planning committees has been set
up, namely: The Planning Board for European Inland Surface Transport,
The Civil Defence Committee, The Committee on Refugees and Evacuees, The
Food and Agriculture Planning Committee, The Industrial Raw Materials
Planning Committee, The Coal and Steel Planning Committee and an Expert
Working Group on Manpower.
70. Subsequently the field of Emergency Planning was further extended,
and it became apparent that with so many different Boards and Committees
working on different aspects of the same problem, there was a serious
risk of confusion and overlapping unless arrangements were made to give
them uniform guidance, co-ordinate their work, and review their progress.
71. Accordingly, in November 1955, the Senior Civil Emergency Planning
Committee was set up by the Council to undertake this work. The Chairman
is the Secretary General of NATO, and the members are, as a rule, those
officials who are responsible for civil emergency planning in their own
countries. This Committee has already proved its value.
72. The present organization of Civil Emergency Planning is shown in
the diagram at Annex B. The titles of the Boards and Committees speak
for themselves.
73. To sum up, it may be said that NATO civil emergency planning has
now been established on a fairly satisfactory footing. The necessary machinery
is in existence: the NATO goals and objectives, as well as the priorities
governing them, have been agreed upon: and national and international
plans and progress are to be reviewed at least once a year. It may well
be that in the future there will be an Annual Review of Civil Emergency
Planning on the same lines as the military Annual Review. At the same
time it must be admitted that, although some nations have made satisfactory
plans and preparations, the same cannot be said of all of them. This is
a matter which the Council have constantly brought to the attention of
Governments.
The
Committee of three
74. It is fair to say that from the moment that NATO came to Paris, the
Council have not lost sight of the importance of developing co-operation
between the member countries in the field of Article 2 of the Treaty,
and it may be claimed that some progress has been achieved in this field.
Nevertheless, & great deal remains to be done; and it was with this
in view that the Council, at the Ministerial Session of May, 1956, set
up a Committee of Three Foreign Ministers (Dr. G. Martino, Italy; Mr.
H. Lange, Norway; and Mr. L.B. Pearson, Canada) "to advise the Council
on ways and means to improve and extend NATO co-operation in non-military
fields and to develop greater unity within the Atlantic Community".
75. This Committee met in Paris in June, and prepared a questionnaire
which was sent to all NATO member governments seeking their views on a
number of specific aspects of the problems under study. On the basis of
the replies to this questionnaire, the Committee during the month of September
held consultations with representatives (in most instances the Foreign
Minister) of each country individually. The Committee also met with the
Secretary General, and with representatives of parliamentary associations,
and voluntary organizations connected with NATO.
76. The Report was submitted to the Council in November 1956. At their
Ministerial Meeting in December 1956, the Council approved its recommendations
and authorised its publication. Some of the more important recommendations
made by the Committee, and the action that has been taken, or is contemplated
thereon, are summarised under their appropriate headings later in this
Report.
Political
Co-operation
77. Ever since their arrival in Paris, the Council in permanent session
have given increasing attention to political consultation, and it is significant
that the number of Private Meetings, which are generally devoted to political
matters, has steadily increased each year. In 1952, there were 17 such
meetings; in 1953, 23; in 1954, 35; in 1955, 43; and in 1956, 66. Nevertheless,
it must be recognized that the practice of consultation in the Council
has not as yet developed sufficiently to meet the demands of political
changes and world trends.
78. It was with this in mind that the Committee of Three devoted a significant
part of their Report to this subject, and they recommended, inter alia,
that Foreign Ministers, at each spring Meeting, should make an appraisal
of the political progress of the Alliance and consider the lines along
which it should advance. This will be done at Bonn next month.
79. The Committee also recommended that, with a view to preparing for
the above discussion, the Secretary General should submit an annual report
analysing the major political problems of the Alliance, reviewing the
extent to wich Member Governments had consulted on such problems, and
indicating the problems and possible developments which might require
future consultation. The Council decided that there was not sufficient
time for the Secretary General to prepare a report of this kind for the
next meeting.
80. Another important recommendation of the Committee of Three was that
a, Committee of Political Advisers should be set up under the chairmanship
of a member of the International Staff, the members being provided by
each Delegation, aided when necessary by specialists from the capitals.
This Committee was duly established in January, 1957, under the chairmanship
of the Assistant Secretary General for Political Affairs; and it has been
in practically continuous session ever since. The Committee has been much
assisted in its studies by calling on the aid of specialists from Member
Governments. Three such groups of experts have recently co-operated with
them in producing comprehensive political reports on problems of special
concern to the Alliance.
Disputes
between member countries
81. The Committee of Three drew attention to the crucial importance of
avoiding serious disputes between member countries, and of settling them
quickly and satisfactorily if they were to occur. With this in view, they
recommended, inter alia, that the Secretary General should, in the event
of any such dispute, be empowered to offer his good offices informally
at any time to the parties concerned, and, with their consent, to initiate
or facilitate procedures of enquiry, mediation, conciliation, or arbitration.
82. Accordingly, I deemed it my duty last March to offer my good offices
to the Governments of Greece, Turkey, and the United Kingdom for the settlement
of the dispute over Cyprus. The Governments of Turkey and the United Kingdom
accepted my proposal in principle, but the Government of Greece have so
far felt unable to do so.
Economic
Co-operation
83. The Committee of Three recommended the setting up of a Committee
of Economic Advisers. This Committee has been established under the Chairmanship
of the Assistant Secretary General for Economics and Finance. It will
discuss any economic issues of special interest to the Alliance, particularly
those which have political or defence implications, or affect the economic
health of the Atlantic Community as a whole, without, however, duplicating
the work which is being carried out in other more specialised international
organizations.
Co-operation
in the social and cultural fields
84. The Council have not been unmindful of their responsibility for promoting
co-operation between the member countries in the Social and Cultural fields.
But it must be admitted that the results so far achieved have been relatively
modest.
85. In 1953, Dr. H.K. Reinink, Secretary General of the Netherlands Ministry
of Education, was invited by the Council to prepare a broad survey of
existing cultural contacts between member countries; and to suggest ways
and means by which more could be done. Dr. Reinink's review contained
a number of very useful proposals. The steps which the Council have been
able to take are summarised in the paragraphs which follow.
86. A NATO Fellowship and Scholarship Programme has been instituted.
This is designed "to promote the study of historical, political,
constitutional, legal, social, cultural, linguistic, economic, and strategic
problems which will reveal the common heritage and historical experience
of the Atlantic countries, as well as the present needs and future development
of the North Atlantic area considered as a Community".
87. Originally there were 16 awards divided between NATO Research Fellowships
for established scholars, and long-term Scholarships for younger students.
In the event, the successful candidates for Fellowships were: 1 Canadian,
2 French, 1 German, 1 Italian, 1 Dutch, 1 Norwegian, 1 Turk, 2 British
and 1 American. The successful candidates for Scholarships were 1 Belgian,
1 Dutch, 1 German, 1 Greek and 1 Italian. The expenditure on the above
amounted to 13.5 million francs, and the Council have now approved an
increased expenditure of 21 million francs for this year. This will allow
for a total of 20 Fellowships and Scholarships instead of 16.
88. The Council have also taken steps to encourage and support international
seminars of interest to NATO. In 1956, 1 million francs were granted to
a Seminar at Oxford University in which 50 persons from NATO countries
took part. This year 2| million francs have been granted to an international
Seminar at Princeton University on "The Future of NATO".
89. The Council have also recently approved a "Visiting Professorship
Programme" which will provide for a number of University Professors
to teach at Universities in NATO countries, other than their own, for
one term, at the expense of NATO.
90. It is to be noted that the Committee of Three drew special attention
in their Report to the importance of cultural co-operation, and suggested
the general principles by which member governments should be guided in
this matter. Their proposals are receiving careful consideration.
Information
91. In practically every Progress Report that I have submitted in the
last five years, I have invited attention to the desirability-indeed the
necessity-of enlightening public opinion in all member countries about
the purpose and achievements of the North Atlantic Alliance. While it
is clear that the Council and the International Staff have an important
role to play in this matter, it is equally clear that the primary responsibility
rests with individual governments.
92. The above views were endorsed by the "Committee of Three",
who put forward a number of helpful recommendations as to the specific
measures which should be taken to facilitate co-operation between the
NATO Information Division, and national Information Services; and they
emphasised that "the former must be given the necessary resources
by governments as well as their support",
93. It must be frankly admitted that there is still widespread ignorance
about NATO in all the member countries, even among men and women who are
generally speaking well informed. On the other hand it can be claimed
that substantial headway has been made in this field during the past five
years. Some idea of the rate of expansion of information activities may
be gauged from the fact that in 1952, the operational budget was eight
million French francs.
Reflecting, I trust, both a growing conviction on the part of member countries
that there was an important job to be done and an increased confidence
in the ability of the International Staff to make a useful contribution
to the task, the budget has increased each year, and in 1957, reached
a total of 93.6 million French francs. It is, however, to be noted that,
whereas the staff authorised for the Information Division numbered 38
in 1952, it still stands at that figure. An increase is urgently required
if we are to cope with our ever-growing activities. These are summarised
in the paragraphs that follow.
94. So far as publications are concerned, the objective has been to provide
those who form and guide public opinion with suitable documentation about
the Alliance. Fifty-one thousand copies of my Report, "NATO, The
First Five Years, 1949-1954" have been distributed in English, French,
Italian and Turkish. The NATO Handbook, a fifth edition of which is now
at the printers, has had a circulation of more than 200,000 copies. The
demand for the monthly "NATO Letter" has grown steadily; it
now a total circulation of 29,000 copies. A brochure entitled "NATO
and the Trade Unions", published last January, has received a very
encouraging reception from trade union organizations on both sides of
the Atlantic. A special American edition is being prepared, and language
versions in Norwegian and Dutch are also under compilation. It is interesting
to note that the distribution of this brochure is being undertaken by
the free Trade Unions Organizations themselves. The Committee of Three
recommended that "budget provision should be made for a translation
fund, so that NATO information material can be translated into the non-official
languages of the Alliance". The early implementation of this proposal
is in my judgment, most important.
95. Journalists' tours to NATO countries, sponsored and largely financed
by NATO, were started in 1953. Up to the present day 38 such tours have
taken place, and a total of 516 persons has taken part in them. All member
countries, with the exception of the United States of America, have been
visited: and the United States Government have sponsored a large number
of tours under their own auspices. Tours have hitherto been confined mainly
to journalists, but they are to be broadened to include others who are
in a position to influence public opinion, such as Trades Union and Youth
Leaders, Teachers and Lecturers.
96. An ever-increasing number of groups of various kinds have visited
the Palais de Chaillot to learn about NATO. Last year, for example, 130
groups totalling nearly 5,000 persons were briefed at the Palais de Chaillot.
Of these, 16 groups consisted of industrialists, 26 groups of educationalists,
students and Youth Leaders, 25 of Journalists, 26 of Civic Authorities
of various kinds, and 26 of military personnel. Most of these groups,
after being briefed at the Palais de Chaillot, have proceeded to SHAPE
in order to be instructed in the military aspects of NATO's work. I have
made a point of addressing most of them myself. In the first quarter of
this year there has been an increase of 20% in the number of groups received.
97. NATO mobile exhibits have toured France, Italy, Greece, Turkey, Denmark
and Germany. They j have been visited by more than 9 million persons,
who have carried home from these visits several million leaflets telling
in simple language the principal aims and achievements of the Alliance.
At the moment, new mobile exhibits are about to take to the road, or are
being prepared in the United Kingdom, Italy and Belgium.
98. Film production is costly, but steady progress is being made. The
film entitled "Alliance for Peace" has recently been brought
up-to-date in a fourth edition; and the film "Around this Table"
continues to have a wide distribution not only in NATO, but also non-NATO
countries. The Atlantic Community Film Series-short documentaries about
each member country, financed with the help of the United States Government-is
now complete, with the production of the film on the Federal Republic
of Germany. It is hoped that this film will be televised on the occasion
of the forthcoming Ministerial Meeting in Bonn. Other films of this series
have already had wide TV circulation in several member countries; and
this will increase as versions in the non-official languages become available.
99. With a view to promoting closer relations between NATO and youth
organizations, two Conferences of Youth Leaders have been organized at
the Palais de Chaillot-the last in July 1956. Many useful recommendations
emerged from these discussions. Similar Conferences are to be held in
the future, and an expert in this type of work is shortly to be added
to the Information Division.
100. With a view to exchanging ideas and ensuring uniformity in the presentation
of the case by all member governments, four Conferences of National Information
Officers have been organized by the Information Division. They have proved
most valuable.
NATO
Parliamentarians
101. In 1953, the Council agreed to suggest that member governments should
encourage the setting up of groups of Parliamentarians specially interested
in NATO. It was thought that these groups might develop their own contacts
with each other, and might perhaps arrange combined meetings, say at NATO
Headquarters, to discuss matters of common interest.
102. During 1954, Parliamentary groups from Denmark, Norway, France and
the United Kingdom visited the Palais de Chaillot and were briefed by
the International Staff. In the following year Parliamentary groups from
Belgium and Canada did likewise.
103. In July 1955 the first Conference of groups of Parliamentarians
from all NATO countries was held at the Palais de Chaillot under the Chairmanship
of Senator Robertson of Canada. Some 200 Members of Parliament from 14
NATO countries attended . All necessary technical facilities were provided
by the International Staff.
104. The final resolutions of the Conference were:
(i) that the Speakers of Parliaments concerned should be invited to send
delegates to similar assemblies each year;
(ii) that the governments of the countries represented should facilitate,
through the NATO Council, further meetings; and
(iii) that a Continuing Committee should be set up.
105. The Continuing Committee mentioned in (iii) above was duly set up
and had its first meeting in London in September 1955 to discuss organizational
questions.
106. A second Conference of Parliamentarians was held in November 1956
under the Chairmanship of Mr. Wayne L. Hays of the United States, Member
of the House of Representatives. On this occasion all member countries
were represented. The Secretary General, the Supreme Allied Commander
in Europe, addressed the Conference, and senior civil and military officers
attended several of the meetings. All possible technical facilities were
again provided by the International Staff. The discussions were frank
and constructive and extended to a number of highly controversial questions.
107. The Committee of Three, in their Report to the Council, emphasised
the importance of maintaining a close relationship between Parliamentarians
and NATO. It is hoped that this will be ensured by the machinery and procedures
which are described in the foregoing paragraphs.
Voluntary
organizations
108. Voluntary organizations in support of NATO have been set up in 12
member countries, namely: Belgium, Canada, Denmark, France, Germany, Greece,
Italy, Netherlands, Norway, Turkey, United Kingdom and United States.
(See Annex F).
109. In February 1955, an international body entitled "Atlantic
Treaty Association" was set up to coordinate the activities of all
these national organizations. The Associations has (1) an Assembly, (2)
a Council, and (3) a Secretariat.
110. The Assembly meets once a year, each national organization is entitled
to be represented by a maximum of 12 delegates. The Assembly elects the
principal officers of the Association. They are at present:
President : Count U. MORRA (Italy)
Vice-Chairmen : Dr. H.P. NORD (Netherlands)
Dr. Ralph C.M. FLYNT (United States)
Secretary-General Mr. John EPPSTEIN (Uni
ted Kingdom)
Secretary for Research: M. Jacques VERNANT
(France)
Hon. Treasurer : Mr. Per MARKUSSEN (Den
mark)
111. The Council meets three or four times annually to decide upon current
business between the sessions of the Assembly. The Council consists of
the principal officers of the Association and one delegate from each national
organization.
112. The Secretariat has its office in London. It takes care of the day-to-day
business.
113. The Association has held two Assemblies in Paris (June 1955, September
1956). The third Assembly will take place in Rome in June 1957.
114. In September 1956, the Association arranged a conference for representatives
of educational authorities of the member countries at the Palais de Chail-lot.
The theme was "The Role of the School in the Atlantic Community",
and NATO provided the necessary technical facilities. The conference produced
a valuable Report, which has been widely distributed in the member countries.
It is proposed to hold a conference of this kind every two years.
115. The Association is now organizing through the national organizations
an international competition for journalists, writers and authors, who
are invited to write articles and books on any aspect of the Atlantic
Community. Substantial prizes are offered.
116. The International Staff keep in close touch with these voluntary
organizations. It is our policy to give them all possible support without
of course attempting to run them or finance them.
Aerial
navigation
117, Towards the end of 1954 it became apparent that, with the continuing
expansion of both civil and military flying over the European countries
of NATO and with the increasing use of jet aircraft, air traffic congestion
in this area constitued a problem which affected the safety of both military
and civil air operations and imposed an economic penalty on the civilian
air transport operators. In these circumstances, I was approached both
by the NATO military authorities and by the Chairman of the Council of
the International Civil Aviation Organization with a proposal that NATO
should undertake the task of co-ordinating military and civil air operations
over NATO Europe. The problem was put to the Council who referred it to
an Expert Working Group.
118. In the light of their advice, the Council, in April 1955, set up
a Committee on European Airspace Co-ordination to deal with the military
and civil utilisation of the airspace of NATO countries in Europe, with
the general aim of promoting safety and economy in flying while preserving
the maximum freedom for the training of NATO air forces. The Committee
is composed of high-ranking military and civil representatives from the
NATO countries. It works in the closest co-operation with the NATO military
authorities, representatives of ICAO being invited to attend in an advisory
capacity.
119. The Committee has proved of great value in planning for the use
of airspace, in particular when air exercises are taking place. They are
now studying the problem of the use of the upper airspace which, from
about 1958 onwards, will be increasingly required not only for military
aircraft but also for turboprop and jet-powered civilian aircraft.
120. Planning for the use of European airspace done by the NATO member
countries through this Committee has, of course, to be co-ordinated in
certain fields with non-NATO countries which also use this airspace. This
co-ordination is achieved through ICAO, to whom we are indebted for allowing
NATO to use the good offices of the ICAO Regional Europe-Mediterranean
Office.
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