Intervention on NATO-EU Relations

Thank you to Charles-Henri Delcour, the Belgian Chief of Defence for kindly inviting me to be a member of this panel

I want to very briefly recap on some highlights from the life of Paul-Henri Spaak, a truly illustrious Belgian:

• During his life he was Belgian Prime Minister on two occasions
• Chairman of the 1st General Session of the United Nations, and famous for saying to the Russians “Messieurs, Nous avons peur de vous”. (Sirs, we are afraid of you.)
• one of the founding fathers of the European Union and chairman of the committee that founded the Common European Market and co-responsible for overcoming French objections to the British joining the European Union; and,
• the Secretary General of NATO, succeeding Lord Ismay

Surely, no man has done more in the history of our two institutions in terms of developing them and fostering co-operation and inclusion.  Yet, I fear that if he were alive today he would be very disappointed at the current state of NATO-EU relations

In the current 21st Century security environment, and indeed global financial situation, more than ever we need the closest possible co-operation and co-ordination between our two organisations.  It is my view, however, that we do not have such a relationship because we have not, indeed cannot, engage at the strategic political level

The commitment to achieve closer relations between NATO and the EU is certainly not a new issue but since the late 1990s differing national interests have consistently slowed down the process

What is new is the remodeling of the strategic landscape which requires more co-operation now than in the past.  But the nature of crises is the main reason for a comprehensive approach to bring the two organisations closer, even if it is a long-term process.

NATO and the EU arose out of very different foundations, and I am struck by the fact that, naturally, this results in very different but complementary approaches to a common problem.  Although, today, NATO is a political-military alliance, with a military core mission, and the EU is a political-economic organisation with a multi-dimensional and civil core mission, the fact is that in this 21st Century security environment, NATO is developing more and more into its political dimension whilst the EU is developing more concrete military aspirations.  Whilst there remain some difficulties, there is overall a more convergent approach

And the new security environment, which combines major political changes and new strategic uncertainties against the background of a deep-rooted financial crisis, will drive us to the same conclusions, the same destination and if we, as institutions, are to be successful, then we will have to have greater collaboration from start to finish – starting at the political level

NATO’s new Strategic Concept and EU’s Lisbon Treaty can be instrumental in the strengthening of a deeper relationship and partnership.  However, the NATO-EU strategic partnership is still hampered by differences for other well known political issues even if the emerging political impetus between Europeans and Americans on the one side, and among Europeans themselves on the other, should bring about positive changes.  So, specifically, how and why should this NATO-EU relationship be made more efficient?  The ‘Why’ is obvious, since we are talking here about two organisations that share the same values, namely democracy, rule of law and human rights and which mainly comprise the same member countries

Furthermore, we share the same Threats and Challenges: 
 
Our security environment has changed both in political and in strategic terms.  Washington’s current administration brought a new U.S. vision of the role of the United States in the world.  That strategic vision relates to both relations with Russia and the situation in Afghanistan, but more generally to America's position vis-à-vis new areas of crisis.  It also relates to the recent recognition by the US of the Common Security and Defence Policy (CSDP), which constitutes a major change that could move the goalposts in NATO-EU relations

Additionally, Russia's new strategic posture is a clear indication of its intention to regain a major role on the international political scene by asserting its position both in the military and energy fields while initiating a strategic dialogue with the US and NATO.  It should be acknowledged that for some European nations, Russia's new attitude is perceived with considerable uneasiness, particularly after the summer 2008 events in Georgia.

Strategic uncertainty is what looms on the horizon for the foreseeable future, and we must grasp the reality that threats evolve, even mutate, extremely rapidly.  More than ever before, security is increasingly seen as globalised.  We already live in a globalised world, where often borders are more imaginary as opposed to physically delineated on the ground.  NATO's new Strategic Concept, which is to be adopted at the Lisbon Summit in November, will undoubtedly take into account that need for global security, enabling NATO to become a credible actor in a globalised world rather than the policeman of the world.  In this area, the European Union has significant assets of its own which can broaden the range of Euro-Atlantic capabilities

Therefore, if the ‘Why’ is obvious, what about the ‘How’?
 
Within NATO and within the EU, we have an overarching perception of crises, without having a comprehensive approach to solving them.  Yet, it is precisely a comprehensive approach that is required to find the most relevant and sustainable solutions, which will benefit us all
 
Moreover, if after analysing the problem the decision is taken to become involved, the means to do so are limited and are provided by the same nations.  Let me remind you that 21 of the 28 NATO nations are also EU members, and that when one of the two organisations becomes involved, it deploys assets which are no longer available to the other

In the maritime area, for example, the EU is perhaps in a better position today than NATO, in regards to counter-piracy off the coast of Somalia.  So, therefore, why not simply decide to let the EU lead the counter-piracy mission?  In that framework NATO's naval assets could support the EU’s.  Instead of mounting two separate operations – “ATALANTA” for the EU and “OCEAN SHIELD” for NATO.  Coordination can be considerably improved in this matter, while still respecting each organisation’s independent decision-making

The recent economic crisis and slow recovery should strengthen the need for deeper collaboration in capability development where both organisations share the same shortfalls and dramatically seek efficiencies.  I believe that this factor is conducive to prioritizing actions and expenditures and therefore to close cooperation between NATO and the EU
 
However, I do not believe that it is enough to make do with “complementarity” between NATO and the EU.  What we need is to develop a culture of “acting together” through genuine strategic partnership to achieve a common vision of the objectives to be reached, defining, at the earliest, individual roles to avoid competition between both organisations as well as unnecessary and costly redundancy

We all know that a solution to the conflict cannot only be military, that it requires a comprehensive approach involving NATO in securing the region, followed by good governance and the development and improvement of the population’s living conditions.  This is seen in our approach that has only recently begun being implemented in Afghanistan, and is part of the process that will lead to a successful transition.  We must endeavour to strengthen further our collaboration, based on lessons learned from Afghanistan.  Here, collaboration is essential,  because if the mission there fails, it would not only be a setback for NATO, but also the defeat of the West as a whole and more than that, a setback for the entire international community

In the NATO-EU future, there will be places where NATO intervention is preferable, with large scale crisis management capabilities, including war fighting.  There will also be places where EU intervention is preferable with its panoply of civilian and economic tools and the military, to a lesser degree.  But the EU and NATO should always act in a supporting-supported role, in reciprocity depending on circumstances, to cope with challenges in a truly comprehensive manner

The EU has major assets of its own which NATO needs, such as functions essential to reinstating the rule of law, justice, border protection, police or civil security.  The challenges we are facing today can no longer be met by mono-cultural organisations. The complex nature of those challenges and the scope of requirements needed to solve them, have become so great that cooperation between organisations is absolutely essential

Indeed, terrorism, the proliferation of weapons of mass destruction, the weakening of national sovereignty, depletion of natural resources, energy security, the consequences of global warming, demographic explosion and population migration, the technological revolution, cyber threats, competition for values and ideologies, failed or failing states, and economic and financial upheaval now constitute the main threats, risks and challenges.  So, without being exhaustive, this list gives an idea of how hard it is to precisely define the threats, risks and challenges of today and tomorrow – what is certain is that they cannot be tackled by one institution alone

In conclusion, I believe that beyond political differences which are still noticeable and often strong, the road leading to better NATO-EU efficiency does exist, for NATO and the EU have a shared awareness, namely that of being essential stakeholders in the security of an increasingly globalized world.  NATO is still a synonym of security and the EU of prosperity.  The NATO-EU relationship must be considered as a strategic partnership in order to develop a common vision and promote “acting together.”

Perhaps, if we can achieve this, Paul-Henri Spaak could rest in peace and perhaps NATO and the EU could re-use his sentiments  “Messieurs, Nous ne devons plus avoir peurs les uns des autres”

There is a statue in front of the EU Council LEX building at Schumann with the inscription “Stepping Forward"; it should be taken as auspicious and as a reference for our renewed commitment to engage